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DEBATERS'  HANDBOOK  SERIES 


CITY  MANAGER  PLAN  OF 
GOVERNMENT 


Debaters'  Handbook  Series 

American    Merchant    Marine 

Debaters'  Manual    (2nd  ed.  enl.) 

Capital    Punishment    (3d   ed.    rev.) 

Commission  Plan  of  Municipal  Govern- 
ment (3d  ed.  rev.  and  enl.) 

Central  Bank  of  the  United  States 

Child  Labor   (2d  ed.  rev.  and  enl.) 

City  Manager  Plan 

Compulsory  Arbitration  of  Industrial 
Disputes  (Supp.  to  2d  ed.) 

Compulsory  Insurance 

Compulsory  Military  Training 

Conservation   of   Natural    Resources 

Direct  Primaries   (3d  ed.  rev.  and  enl.) 

Election  of  U.   S.  Senators    (2d  ed.) 

Employment  of  Women 

Federal  Control  of  Interstate  Corpora- 
tions   (2d  ed.   rev.  and  enl.) 

Free  Trade  vs.  Protection 

Government  Ownership  of  Railroads 
(3d  ed.  rev.  and  enl.) 

Government  Ownership  of  Telegraph 
and   Telephone 

Immigration    (2d  ed.) 

Income  Tax  (3d  ed.  rev.  and  enl.) 

Initiative  and  Referendum  (3d  ed.  rev.) 

Minimum    Wage 

Monroe  Doctrine  (2d    ed.  rev.  and  enl.) 

Mothers'   Pensions 

Municipal  Ownership    (3d  ed.) 

National  Defense  Vol.  I 

National  Defense.  Vol.  II 

Open  versus  Closed  Shop  (2d  ed.) 

Parcels  Post   (2d  ed.  rev.  and  enl.) 

Prohibition  (2d  ed.) 

Recall    (2d  ed.   rev.   and  enl.) 

Reciprocity 

Single  Tax    (2d  ed.) 

Trade  Unions    (2d  ed.   enl.) 

Unemployment 

Woman  Suffrage   (3d  ed.  rev.) 

World  Peace    (2d  ed.  rev.  and  enl.) 

Other   titles  in  preparation 

Each  volume,  $1.25  net 


Debaters*    Handbook    Series 


SELECTED  ARTICLES 

ON   THE 

CITY  MANAGER  PLAN  OF 
GOVERNMENT 


COMPILED    BY 

EDWARD  CHARLES  MABIE.  A.M. 


THE    H.    W.    WILSON    COMPANY 

NEW  YORK 

1918 


Published  May,  1918 


EXPLANATORY  NOTE 

Since  the  commission-manager  plan  was  put  into  operation  in 
Sumter,  S.  C,  in  1913,  there  has  been  an  increasing  interest  in 
this  form  of  municipal  government,  and  a  constantly-growing 
number  of  cities  have  adopted  the  plan.  This  handbook,  true  to 
the  purpose  of  the  series,  presents  a  brief,  a  selected  bibliog- 
raphy, and  reprints  of  important  articles,  setting  forth  the 
theory  and  principles  of  the  new  plan,  arguments  and  experience 
both  in  favor  and  against  it,  illustrative  charts,  and  extracts 
from  city  manager  charters  and  statutes.  The  bulk  of  the 
material  was  selected  in  1917  but  publication  was  unavoidably 
delayed,  and  the  volume  has  been  brought  down  to  date  by  the 
addition  of  references  to  recent  articles  to  the  bibliography,  and 
the  inclusion  of  additional  reprints  which  will  be  found  in  the 
appendix. 

E.  M.  P. 
April  22,   1918. 


CONTENTS 

Brief 

Introduction     xi 

Affirmative     xi 

Negative    xiii 

Bibliography 

Bibliographies    xv 

Texts  and  Digests  of  City  Manager  Charters xv 

City  Manager  Statutes   xvi 

City  Managers'  Reports  xvii 

General  References   xix 

Affirmative  References   xxiii 

Negative  References  xxviii 

Introduction    i 

Definitions  of  the  City  Manager  Plan 7 

Cities  and  Towns  in  the  United  States  under  City 

Manager   Government    (map) lo 

Municipalities  Operating  under  City  Manager  Chart- 
ers AND  Statutes   (table) 1 1 

Municipalities  Operating  under  a  Modified  Form  of 

City  Manager  Plan  (table) 12 

City  Manager  Statutes 

Digest  of  New  York  City  Manager   Statute 13 

Digest  of  Virginia  City  Manager  Statute 15 

City  Manager  Charters 

Excerpts  from  a  Model  City  Manager  Charter I7 

Typical  City  Manager  Charter  of  Springfield,  Ohio 22 

Digest  of  the  Charter  of  Dayton,  Ohio 55 

Upson,  Lent  D.  Comment  on  the  Dayton  Charter 

National   Municipal   Review  58 

General  Discussion 

Toulmin,  Harry  Aubrey.     The  City  Manager,  Qualifica- 

ions,  Powers  and  Duties w 

Childs,  Richard  S.     The  Theory  of  the  New  Controlled 

Executive  Plan National  Municipal  Review  n 


viii  CONTENTS 

Childs,  Richard  S.,  Waite,  Henry  M.  and  others.  Profes- 
sional Standards  and  Professional  Ethics  in  the  New- 
Profession  of  City  Manager 

National  Municipal   Review         84 

First  Advertisement  for  a  City  Manager,  Sumter,  S.  C. 

104 

The  First  County  Manager:  A  Model  County  Govern- 
ment  Short  Ballot  Bulletin        105 

Affirmative  Discussion 

Bradford,  Ernest  S.  Coming  of  the  City  Manager  Plan. .         107 

Childs,  Richard  S.     How  the  Commission-Manager  Plan 

Is  Getting  Along National  Municipal  Review        iii 

Childs,  Richard  S.     How  the  Commission-Manager  Plan 

Is  Getting  Along National  Municipal  Review        123 

Certain  Weaknesses  in  the  Commission  Plan  of  Muncipal 

Government.      Why   the    Commission-Manager    Plan 

Is   Better    128 

Waite,  Henry  M.     The  Commission-Manager  Plan 

National  Municipal  Review        131 

Upson,  Lent  D.    The  City-Manager  Plan  of  Government 

for  Dayton National  Municipal  Review        137 

Organization    of    an    American    Business    Organization 

(chart)    142 

The  Principles  of  Business  Organization  AppHed  to  City 

Government    (chart) 143 

Springfield's   Present   Organization 144 

Results  Accomplished  in  City-Manager  Cities. 

Hardin,  M.  H.     Amarillo,  Texas  145 

How  One  City  Manager  Succeeded 

Short  Ballot  Bulletin         146 

Otis,  Harrison  G.  First  Annual  Report  of  the  City  Coun- 
cil and  City  Manager  to  the  Citizens  of   Beaufort, 

South  Carolina  148 

Manager  Principle  Applied  to  Beaufort   (chart) 151 

Carr,  O.  E.     Cadillac,  Michigan 152 

City  Managers'  Report  for  1916 

Cadillac  Evening  News        154 

Wilson,  T.  A.     Clarinda,  Iowa 156 

Upson,  Lent  D.  One  Year  of  City  Management  in  Day- 
ton, Ohio Real  Estate  Magazine        158 


CONTENTS  ix 

Waite,  H  M.  Dayton,  Ohio Annual  Report  164 

Ekey,  J.   S.  Grove  City,  Pennsylvania 176 

Cornwell,  S.  C.     How  the  City  Manager  Plan  Works  in 

Hickory,    North    Carolina 177 

Iowa    Falls,    lov^^a 179 

Cummin,   Gaylord  C.   Results  Accomplished  in  Jackson, 

Michigan     181 

Cummin,  Gaylord  C.    Jackson,  Michigan 

Report   of   1915  182 

First   Year    Under    Plan    C    Government    in    Newburgh, 

N.  Y Newburgh  Daily  News  186 

Newburgh,  New  York Newburgh  Daily  News  187 

Bingham,  C.  A.     Norwood,  Massachusetts 191 

Barnwell,  W.  G.  Rock  Hill,  South  Carolina 192 

Miller,  W.  L.     St.  Augustine,  Florida 193 

The  Sandusky  Stuation 196 

Reed,  Thomas  H.     The  City  Manager  Plan  in  San  Jose 

Pacific    Municipalities  197 

Mitchell,   Karl.     Sherman,   Texas 203 

Ashburner,  C.  E.  Springfield,  Ohio 206 

Negative  Discussion 

Bradford,  Ernest  S.     The  Coming  of  the  City  Manager 

Plan    209 

Foulke,  William  Dudley.  Some  Cautions  About  the  City 

Manager    Plan 210 

McBain,  Howard  L.     The  Evolution  of  Types   of  City 

Government  in  the  United   States 

National  Municipal  Review        212 

James,  Herman  G.  Defects  in  the  Dayton  Charter 

National    Municipal    Review        215 

Fitzpatrick,  F  Stuart.     Experience  of  Sandusky,  Ohio . . . 

National    Municipal    Review        218 

Hatton,  A.  R.  Ashtabula's  Experiences 

National   Municipal   Review        220 

Williams,  E.  T.  One  Editor's  Opinion  of  the  City  Man- 
ager Plan  in  Niagara  Falls,  N.  Y 221 

Arguments  Against  the  Adoption  of  the  City  Manager 

Plan   in    Pasadena,    California 223 

Five  Reasons  Why  the  Citizen's  Committee  Opposed 
the  Adoption  of  the  City  Manager  Plan  in  Pasadena, 
California    Pasadena   Star-News.        227 


X  CONTENTS 

Emslie,   C.  C.     Argument  Against  the  Adoption  of  the 

City  Manager  Plan  in  Berkeley,  California 229 

Arguments  Against  the  Adoption  of  the   City   Manager 

Plan   in    Springfield,    Massachusetts 

The   Springfield  Union  231 

Kansas    City   Defeats   Manager   Plan 

Municipal  Journal  233 

Commission  Form  Loses Municipal  Journal  234 

City  Manager  Plan  Defeated Municipal  Journal  234 

County  Manager  Charter  Defeated. ..  .Municipal  Journal  234 

Another  County  Charter  Defeated. ..  .Municipal  Journal  235 

Iowa  City  Managers  Resign Municipal  Journal  236 

Appendix 

Muncipalities   Under   the   City   Manager   Plan,   March    i, 

1918  237 

Proposed  Aplication  of  the  Manager  Idea  to  the  Gov- 
ernment   of    Chicago Equity        238 


BRIEF 

INTRODUCTION 

I.  Definition : 

The  city  manager  plan  of  municipal  government  means  gov- 
ernment by  a  single  elective  council  or  commission  representa- 
tive, supervisory,  and  legislative  in  function ;  and  a  chief  execu- 
tive called  a  "city  manager"  appointed  by  the  commission  solely 
by  reason  of  his  knowledge  of  municipal  affairs  and  administra- 
tive ability,  to  have  control  of  the  work  of  administrative  depart- 
ments. 

Cf.  H.  A.  Toulmin's  "The  City  Manager,"  pp.  76  and  225.  National 
Short  Ballot  Organization,  "Commission  Government  With  a  City  Manager." 

II.  History: 

Staunton,  Va.,  in  1908  originated  the  city  manager  idea. 

The  "Lockport  Proposal"  to  the  New  York  legislature  in  191 1 
combined  the  city  manager  idea  with  the  commission  plan. 

Sumter,  S.  C,  adopted  the  first  commission  manager  charter 
in  June,  1912. 

Dayton,  Ohio,  adopted  the  plan  in  1913.  Forty-five  cities  have 
since  accepted  city  manager  charters  and  many  others  have  ap- 
plied the  manager  idea  to  municipal  affairs  without  charter  re- 
vision.    Several  states  have  adopted  city  manager  statutes. 

The  City  Manager's  Association  was  formed  in  1914  and  has 
held  three  conventions. 

City  manager  proposals  are  now  before  charter  revision 
committees  in  many  cities,  and  the  new  profession  of  city  man- 
agership is  rapidly  being  established. 

Cf.  H.  A.  Toulmin's  "The  City  Manager,"  Chapters  II-VI.  H.  S. 
Gilbertson,  "Sketch  of  the  Movement,"  in  "Commission  Government  With  a 
City  Manager,"  by  National  Short  Ballot  Organization. 

AFFIRMATIVE 

I.     The  city  manager  plan  gives  the  people  better  control  over 
the  government,  for 
A.     The  organization  of  the  government  is  simple,  and  all 
advantages  of  the  short  ballot  are  realized. 


di  BRIEF 

B.  All  powers  are  unified  in  a  single,  small  elective  com- 

mission and  responsibility  is  unmistakably  fixed. 

C.  It   enables   the  people   to   elect    for   considerations   of 

representation  only,  for 

1.  It  abandons  all  attempts  to  choose  good  administra- 

tors by  election. 

2.  The  technical  work  of  administration  is  performed 

by  appointive  officials  not  by  the  commissioners. 

D.  The  people's  representatives,  the  commissioners,  have 

power  to  remove  the  manager  at  any  time  if  he  is 
incompetent  or  insubordinate. 

E.  Men   of   ability  will  be  attracted  to  the  position   of 

commissioner,  for 
I.     Commissioners'    positions    offer    opportunities    of 
great   usefulness  without  interference  with  pri- 
vate business. 

F.  It  abolishes  one-man  power,  for 

1.  The  manager  is  subject  at  all  times  to  the  com- 

mission. 

2.  No  one  member  of  the  commission  can   exercise 

authority  over  the  city  administration,  except  as 
a  voting  member  of  the  group  of  commissioners. 

II.    The  city  manager  plan  provides  efficiency  and  expert  mu- 
nicipal administration,  for 

A.  It  creates  a  simple  administrative  organization  with  a 

single  executive  head. 

B.  The  city  manager  is  appointed  solely  because  of  his 

knowledge  and  experience  in  municipal  affairs  and 
his  executive  ability. 

C.  Subordinate    administrative    officers    are   appointed   by 

the  city  manager  solely  because  of  their  training 
for  the  post  to  which  they  are  assigned,  and  in  large 
cities  are  subject  to  civil  service  provisions. 

D.  There  is  continuity  of  policy  and  stability  in  adminis- 

tration, for 
I.     The  tenure  of  the  city  manager  is  comparatively 
permanent. 

E.  There  is  a  basis  for  good  discipline  and  harmony  in 

administration,  for 


BRIEF  xiii 

1.  The  manager  cannot  safely  be  at  odds  with  the 

commission. 

2.  Subordinate  administrative  officers  are  accountable 

to  the  manager, 
F.    It  promotes  the  establishment  of  the  profession  of  mu- 
nicipal administration  in  the  United  States,  for 

1.  Tenure  of  the  city  manager,  being  dependent  upon 

his  efficiency  alone,  makes  it  worth  while  for  men 
to  seek  training  in  municipal  affairs. 

2.  The  individual  manager  may  migrate  from  city  to 

city,  advancing  from  a  small  to  a  large  city  as  the 
results  of  his  work  merit. 

3.  Schools    and   colleges,    and   civic   associations    are 

placing  increased  emphasis  on  training  for  public 
service  as  a  result  of  the  new  opportunities 
opened  for  careers  as  city  managers. 

4.  The  City  Managers'  Association  has  been  formed 

to  promote  the  city  manager  plan  and  to  provide 
a  clearing  house  for  exchange  of  ideas  and  ex- 
perience among  members  of  the  new  profession. 

III.    The  city  manager  plan  is  in  successful  operation  in  many 
American  cities,  for 

A.  It  has  produced  results  in  the  large  cities  in  which  it 

is  in  operation,  namely  Dayton,  Ohio,  Springfield, 
Ohio,  Jackson,  Mich.,  Newburgh,  N.  Y.  and  San 
Jose,  California. 

B.  It  has  increased  the  efficiency  of  the  administration  of 

small  cities  in  which  it  is  in  operation,  namely 
Sumter,  S.  C,  Hickory,  N.  C,  Cadillac,  Mich.,  Sher- 
man, Texas  and   St.  Augustine,  Fla. 

NEGATIVE 

I.    The  city  manager  plan  centralizes  power  in  the  hands  of 
too  few  men,  for 
A.    Centralization  of  power  increases  the  opportunity  to 
play  politics  on  an  intensive  scale,  for 
I.     Politics   interfered  with  the  administration  under 
the  city  manager  plan   in  Phoenix,  Ariz.,    S^r\r 
dusky,  Ohio  and  Ashtabula,  Ohio. 


xiv  BRIEF 

2.     The  city  manager  plan  is  too  new  and  adventurous 
for  most  American  cities. 

II.     The  city  manager  plan  would  result  in  government  not 
responsive  to  the  people's  wishes,  for 

A.  A  commission  of  five  business  men  cannot  represent 

all  classes  and  divisions  of  the  city. 

B.  Administrative  officials  are  several  steps  removed  from 

control  by  the  people  whom  they  serve. 

C.  The  city  manager  plan  assumes  that  the  employment 

of  experts  obviates  the  need  of  educating  the  elec- 
torate. 

III.  Expert   administration    is    not    guaranteed    by    the    city 

manager  plan,   for 
A.     The  commission  is  unlimited  in  its  choice  of  a  man- 
ager and  may  choose  an  untrained  and  incom- 
petent man. 

IV.  The  city  manager  plan  has  produced  questionable  results 

in  several  cities  in  which  it  has  been  in  operation,  namely, 
Ashtabula,  Ohio,  and  Sandusky,  Ohio. 

V.     The  city  manager  plan  has  been  in  operation  too  short  a 
time  to  warrant  its  general  adoption  in  American  cities. 


BIBLIOGRAPHY 

BIBLIOGRAPHIES 

Beard,   Charles  A.     Digest  of   short  ballot  charters.     The   Na- 
tional Short  Ballot  Organization,  383  Fourth  Ave.,  New  York 
City. 
City  Manager  Plan :  Comprehensive  list  of  references.  37p.  Cleve- 
land Miniicipal  Reference  Library.  Jan.  191 7. 
Obtainable  only  in  typewritten   form   through   the   Public  Affairs  Infor- 
mation  Service,   $1.85. 

Independent.  86:40.  Ap.  3,  '16.  City  manager  plan  debate.  Ref- 
erences.    R.  S.  Fulton. 

Munro,  William  Bennett.  Bibliography  of  municipal  govern- 
ment.    Harvard  University  Press.  Cambridge,  Mass.  1915. 

National  Municipal  Review.  A  bibliography  of  recent  publica- 
tions dealing  with  municipal  problems  is  included  in  each 
issue  of  the  National  Municipal  Review.  Publications  dealing 
with  the  city  manager  plan  are  listed  currently.  North  Amer- 
ican Bldg.  Philadelphia,  Pa. 

Public  Affairs  Information  Service.  Bulletin  for  1915.  p.  174, 
180-3.  Contains  also  notes  regarding  progress  of  city  man- 
ager plan.     H.  W.  Wilson.     See  later  annuals  also. 

Toulmin,  Harry,  A.,  Jr.  The  city  manager.  Appendix  E.  Apple- 
ton,  1915. 

University  Debaters'  Annual,  1915-1916.  p.  175-8.  H.  W.  Wilson. 
1916. 

United  States.  Library  of  Congress.  List  of  references  on  the 
City  manager  plan.    N.  28,  '14.  Typewritten  copy  15c. 

TEXTS  AND  DIGESTS  OF  CITY  MANAGER  CHARTERS 

Model  city  charter  and  municipal  home  rule.  Final  Edition,  Mar. 
15,  1916.  Published  by  National  Alunicipal  League,  North 
American  Bldg.  Philadelphia. 

Albion,  Mich.  Charter  adopted  Nov.  9,   1915. 

Amarillo,  Texas.    Charter  adopted  Nov.   18,   1913. 

Ashtabula,  Ohio.  Text  of  the  novel  features  of  the  charter  re- 
lating to  proportional  representation.  Ashtabula  Chamber  of 
Commerce,  Ashtabula,  Ohio. 


xvi  BIBLIOGRAPHY 

Brownsville,  Texas.  Charter  adopted  Oct.  25,  '15. 

Cadillac,  Mich.  Charter  adopted  Dec.  9,  '13.  City  Clerk,  Cadillac, 
Mich. 

Collinsville,  Okla.  Adopted  Jan.  9,  1914.  City  Clerk,  Collinsville. 

Dayton,  Ohio.  Charter  adopted  Aug.  12,  1913.  Published  by  the 
Bureau  of  Research.  Schwind  Bldg.,  Dayton,  Ohio. 

Durango,  Colo.  Proposed  amendments  to  the  city  charter,  1915. 
Commissioner  of  records  and  seal.   Durango,  Colo. 

East  Cleveland,  Ohio.  Proposed  charter  and  statement  by  the 
charter  commission  adopted  June  6,  1916.  In  effect  Jan.  1918. 
G.  J.  Provo,  Secretary,  East  Cleveland,  Ohio. 

Montrose,  Colo.  Charter  adopted  Jan.  12,  1914.  S.  V.  Hobough, 
City  Clerk,  Montrose,  Colo. 

Phoenix,  Ariz.  Amended  Charter.  Published  by  order  of  the 
commission  of  the  city  of  Phoenix,   1915. 

Petoskey,  Mich.    Charter  adopted  Feb.  14,  1916. 

Saint  Augustine,  Fla.  Charter  adopted  June  7,  1915.  Published 
with  a  statement  in  favor  of  the  charter  by  the  Saint  Augus- 
tine Chamber  of  Commerce. 

San  Jose,  Calif.  Charter  adopted  July  i,  1916.  City  Manager, 
San  Jose,  Calif. 

Sherman,   Texas.     Proposed   charter   reported   by   charter   com- 
mission. Jan.  21,  1915.  City  Clerk,  Sherman,  Texas. 
This   charter  provides   for  a   council   of  sixteen  members.      From   their 

own  number  the  councilmen  select  two,   who  may  be   recalled   by  them   at 

any   time,    to    act   with    the    mayor    as   city   commission.      This    commission 

chooses  and  removes  the  city  manager. 

Springfield,  Ohio.    Charter  in  effect  Aug.  26,  1913. 
Taylor,  Texas.    Charter  in  effect.  Apr.   1914. 
Wheeling,  W.  Va.    Greater  Wheeling  charter.    Adopted  by  660 
vote,  to  be  in  effect  July  i,  1917. 

Digests  of  city  manager  charters  of  the  following  cities  will  be  found  in 
Beard's  "Digest  of  Short  Ballot  Charters,"  and  reprinted  in  "The  Com- 
mission-Manager Plan  of  Municipal  Government,"  published  by  the  National 
Short  Ballot  Organization,  383  P"ourth  Ave.,  New  York,  N.  Y.;  Dayton,  O.; 
Springfield,  O.;  Hickory,  N.  C. ;  Sumter,  S.  C. ;  Amanllo,  Texas;  Cadillac, 
Mich.;  Jackson,  Mich.;  Sherman,  Texas;  Phoenix,  Ariz.;  Manistee,  Mich.; 
Montrose,  Colo.;  Taylor,  Texas;  Collinsville,  Okla.;  Sandusky,  O.;  Ashta- 
bula, O.;   Bakersfield,  Cal.;  La  Grande,  Ore. 

CITY  MANAGER  STATUTES 

Iowa.    City  manager  statute.    Approved,   1914. 
Idaho.    Commission-manager  statute.    Approved,   1917.    Cf.  Na- 
tional Municipal  Review,  p.  417.  May,  1917. 
Kansas.    City  manager  statute.   Approved  February  17,  191 7. 


BIBLIOGRAPHY  xvii 

Massachusetts.  City  manager  statute.  Chapter  267,  General 
Acts  of  1915  entitled  "An  Act  to  SimpHfy  the  Revision  of 
City  Charters."  Part  V,  Plan  D,  Mayor,  city  council  and 
city  manager. 

Montana.  City  manager  statute.  Approved,  1917.  Cf.  National 
Municipal  Review,  p.  417,  May,  1917. 

New  York.  City  manager  statute.  Chapter  444,  Laws  of  New 
York,  1914.  Approved  April  16,  1914,  entitled  "An  Act  to 
Authorize  a  City  of  the  Second  or  Third  Class  to  Adopt  a 
Simplified  Form  of  Government."  Plan  C,  outlined  in  Article 
V,  is  called  a  "government  by  limited  council  with  appointive 
city  manager." 

A  summary  of  the  provisions  of  this  statute  and  an  outline  of  Plan  C 
will  be  found  m  Beard's  "Digest  of  Short  Ballot  Charters." 

North  Carolina.  City  manager  statute.  Approved  March  6,  191 7. 
Plan  D  of  optional  city  charter  law  provides  for  commission 
manager.    Cf.  National  Municipal  Review,  p.  417.  May,  1917. 

Ohio.  City  manager  statute.  Laws  of  1913,  p.  767  et.  seq.,  entitled 
"An  Act  to  Provide  Optional  Plans  of  Government  for  Mu- 
nicipalities and  Permitting  the  Adoption  Thereof  by  Popular 
Vote  in  Accordance  with  Article  XVIII,  Section  2,  of  the 
Constitution  of  Ohio."  The  City  manager  plan  is  outlined  in 
Article  IV. 
A  brief  digest  of  city  manager  provisions  of  the  Ohio  law  will  be  found 

in  Beard's  "Digest  of  Short  Ballot  Charters." 

South  Dakota.  Lyon  city  manager  act.  Passed  in  191 7.  Cf.  Mu- 
nicipal Journal,  p.  420,.  March  22,  1917. 

Virginia.  City  manager  statute.  Ch.  94,  Acts  to  Assembly,  1914, 
entitled  "An  Act  to  Provide  for  a  Change  in  the  Form  of 
Government  of  Cities  Having  a  Population  of  less  than  100,000 
and  of  Towns  and  to  Provide  in  What  manner  Such  Cities 
and  Towns  May  Adopt  Such  Form  of  Government."  Ap- 
proved March  13,  1914. 
Section  6  c  provides  for  the  City  Manager  Plan. 

City  manager  bills  in  191 7  Legislatures. 

Bills  permitting  cities  to  adopt  the  city  manager  plan  were  introduced  in 

the  legislatures  of  New  Jersey,  Nebraska,  and  Indiana  in  19 17.     The  Indiana 

bill  died  in  the  Senate  committee. 

CITY  MANAGERS'  REPORTS 

Alhambra,  Calif.  First  annual  report  of  the  city  manager,  July  i, 
1916.    Charles  E.  Hewes,  City  Manager. 


xviii  BIBLIOGRAPHY 

Beaufort,  S.C.   First  annual  report  of  the  city  council  under  the 
commission  manager  plan  to  the  citizens.  May  i,  1916.  -  Har- 
rison G.  Otis,  City  Manager. 
Reprinted.      See   p.    148   of   this  volume. 

Dayton,  Ohio.  City  Manager's  report.  Jan.  i-June  30,  1914. 
H.  M.  Waite,  City  Manager.  Dayton  Bureau  of  Research. 
613  Schwind  Bldg. 

Dayton,  Ohio.  First  annual  report  of  the  city  commission  to  the 
people.  Jan.  i,  1915.  Published  by  the  citizens  committee,  604 
Commercial  Bldg.,  Dayton,  Ohio. 

Dayton,  Ohio.   Annual  report  of  the  city  of  Dayton  for  the  year 

1915.  Published  by  the  city  commission  June,  1916.    Dayton 
Bureau  of  Research.  613  Schwind  Bldg. 

Excerpts   reprinted.      See  p.    164  of  this  volume. 

Dayton,  Ohio.  Budget  of  the  City  of  Dayton,  1916.  Dayton 
Bureau  of  Research,  613  Schwind  Bldg. 

Hickory,  N.C.  Annual  report  of  the  city  manager  for  the  fiscal 
year  ending  April  30,  1915;  ibid  April  30,  1916.  S.  C.  Corn- 
well,  City  Manager. 

Jackson,  Mich.  Report  of  the  city  manager  to  the  city  commis- 
sion, 1915.    G.  C.  Cummins,  City  Manager. 

Reprinted.      See  p.    182   of  this  volume. 
Montrose,  Colo.    Semi-annual  reports  of  the  city  manager.  Mar. 

13  to  June  30,    1914;   ibid  July   i,  to  Dec.  31,   1914.    P.  W. 

Pinkerton,  City  Manager. 
Montrose,  Colo.    Annual  report  of  city  manager,  Dec.  31,  1915; 

ibid  1916.    J.  E.  McDaniel,  City  Manager. 
Newburgh,   N.Y.    First  annual    report  of   city  manager  to  the 

city  commission,  financial  statement  and  budget  for  the  year, 

1916.  Henry  Wilson,  City  Manager. 
Excerpts    reprinted.      See    p.    187    of    this    volume. 

San  Jose,  Cal.    Report  of  progress,  July  i  to  November  30,  1916, 

submitted  to  the  city  council  by  city  manager,   Thomas  H. 

Reed. 
Springfield,  Ohio.  Annual  report  of  the  city  of  Springfield,  Ohio, 

1914;  ibid  1915.    C.  E.  A.  Ashburnei",  City  Manager. 
Westerville,  Ohio.   First  annual  report  for  the  year,  1916.   Ray  S. 

Blinn,  City  Manager. 
Winnetka,  111.     First  annual  report  for  the  year  ending  Mar.  31, 

1916.    R.  L.  Fitzgerald,  Business  Manager. 


BIBLIOGRAPHY  xix 

GENERAL  REFERENCES 

Academy  of  Political  Science.  5 :  263-341.  Ja.  '15.  Home  rule  for 
cities.  H.  L.  McBain,  L.  A.  Tanzer,  M.  H.  Glynn,  J.  P. 
Mitchell,  D.  F.  Wilcox  and  others. 

Alabama  Municipal  League.  Proceedings,  Tuscaloosa,  Ala.,  Dec. 
3-4,  1914.    City  manager  plan  of  government  discussion. 

American  City.  12:499-514.  Je.  '15.    City  manager  plan  in  forty- 
five  cities. 
Information  regarding  city  managers  who  are  now  holding  office  in  the 

United  States,  including  portraits  and  biographical  data. 

American  City.  14:513.  Mj'.  '16.  Provisions  of  a  model  city 
charter.    C.  R.  Woodruff. 

American  City.  15  :  380-1.  O.  '16.  City  manager  plan  in  a  boy 
city.    R.  D.  Leigh. 

American  City.  15:413-22.  O.  '16.  Some  city  manager  portraits 
and  biographies. 

American  City.  17:533-48.  D.  '17.    Advance  of  the  city  manager 
movement. 

American  Municipalities.  27:  51.  My.  '14.  Montrose,  Colo.,  adopts 
city  manager  plan. 

American  Political  Science  Review.  7:653-5.  N.  '13.  Progress. 
A.  M.  Holden. 

American  Political  Science  Review^.  8:602-13.  N.  '14.  The  city 
manager  plan,  the  latest  in  American  city  government.  H.  G. 
James. 

American  Political  Science  Review.  9:561-3.  Ag.  '15.  Develop- 
ments relating  to  the  commission  and  city  manager  form  of 
municpal  government.    A.  M.  Holden. 

Annals  of  American  Academy.  Vol  41.  May.  '12.  Efficiency  in 
city  government. 

Annals  of  American  Academy.  62 :  163-75.  N.  '16.  Budgetary  pro- 
cedure under  the  manager  form  of  city  government.  Arch 
M.  Mandel. 

Ashtabula.  Chamber  of  Commerce.  The  Ashtabula  plan  of  mu- 
nicipal government,  the  commission  form  with  proportional 
representation.    Ashtabula,  Ohio. 

Baxter,  Sylvester.  Berlin :  A  study  of  municipal  government  in 
Germany.    Salem  Press  Publishing  and  Printing  Co.  1889. 

Beard,   Charles   A.    Digest   of   short   ballot   charters.     National 
Short  Ballot  Organization.  191 1. 
Excerpts    reprinted.      See    pp.    7,    13,    55    of    this    volume. 


XX  BIBLIOGRAPHY 

Berkeley.  California  City  Club.  Civic  Bulletin,  April  15,  1914. 
The  city  manager  plan  for  Berkeley. 

Bluefield,  W.Va.  The  city  manager  plan — some  phases  in  60 
cities,  data  compiled  in  1916,  by  W.  L.  Shafer. 

Bradford,  Ernest  S.  Commission  government  in  American  cities. 
Macmillan.  191 1. 

Bruere,  Henry.    The  new  city  government.    Appleton.    1912. 

California  Outlook.  O.  25,  '13.  The  commission  form  and  the 
city  manager  plan.   E.  M.  Wilder.   Commissioner,  Sacramento. 

City  Manager's  Association.     Third  Annual    Report :    Proceed- 
ings of  the  Third  Annual  Meeting  held  at  Springfield,  Mass., 
November  20-23,  1916.  88  pages,  paper.  25c. 
For   copies   apply   to   W.    L.   Miller,    Secretary   of   the   Association,    St. 

Augustine,    Florida. 

Dayton.    Bureau   of    Municpal   Research.    Some   types   of    city 
government : — a    discussion    before    the    Economic    Club    of 
Indianapolis,  Feb.  25,  1915.   L.  D.  Upson,  613  Schwind  bldg., 
Dayton,  Ohio. 
Engineering   News-Record.   80:398-9.    F.   28,   '18.     Commission- 
manager  form  of  city  government  does  not  eliminate  politics. 
T.  V.  Stephens. 
Equity.  20:11-16.  Ja.  '18.     The  proposed  application  of  the  man- 
ager idea  to  the  government  of  Chicago. 
Reprinted.      See   page   238   of   this   volume. 

Equity.     20:42-6.    Ja.    '18.    Salient     features     of     the     Norfolk 

charter. 
Goodnow,  F.  J.    The  principles  of  the  administrative  law  of  the 
United  States.  Putnam's.  New  York.  1905. 

Book  III,  Chapter  IV,  contains  a  brief  sketch  of  the  changes  in  "Mu- 
nicipal organization  in  the  United  States." 

Hamilton,  J.  J.  Government  by  commission  or  the  dethrone- 
ment of  the  city  boss.    Funk.  191 1. 

Independent.  92:135.  O.  20,  '17.  The  proportional  manager. 
William  E.  Boynton. 

Journal.  Western  Society  of  Engineers.  21 :565-87.  S.  '16.  A  new 
opportunity  for  engineers.   G.  C.  Cummin. 

Kansas.  University.  Bulletin  Vol.  15,  No.  18.  p.  26-7.  S.  '14.  City 
manager  plan. 

League  of  American  Municipalities.    Proceedings.  Detroit,  191 1. 

Literary  Digest.  47 :  308.  Ag.  30,  '13.    Dayton's  unique  charter. 

Literary  Digest.  54:399.  F.  17,  '17.   More  city  managers? 


BIBLIOGRAPHY  xxi 

VIcBain,  H.  L.    Law  and  practice  of  municipal  home  rule.    Co- 
lumbia University  Press.  1915. 
Municipal   Journal.   44:257-9.    Mr.    30,    '18.    City    managers    and 
their  salaries. 

Contains  an  up-to-date  list  of  city  manager  towns  and  cities  with  names 
vi   managers,    dates,    salaries,    etc. 

Munro,  William  Bennett.  The  government  of  American  cities. 
Macmillan.   1913. 

Munro,  William  Bennett.  The  government  of  European  cities. 
Macmillan.  1914. 

Munro,  William  Bennett.  Principles  and  methods  of  municipal 
administration.    Macmillan.   1916. 

National  Conference  on  Universities  and  Public  Service.    Pro- 
ceedings. 1914 :  89-94,  274-9. 
Contains  city   managership,   a   new  career  in  public   service,   by    H.   S. 

Cilbertson;  City  manager,  a  new  career  in  public  service,  by  F.  W.  Blackmar. 

National  Municipal  Review.  2:76-81.  Ja.  '13.  The  theory  of  the 
new  controlled  executive  plan.    Richard  S.  Childs. 

Reprinted.      See   p.    77   of   this   volume. 

National  Municipal  Review.  2:416-26.  Jl.  '13.  The  vital  points  in 
charter  making  from  a  socialist  point  of  view.  C.  D.  Thomp- 
son. 

National  Municipal  Review.  2:679.  O.  '13.  Village  manager  for 
Chicago  suburb,   River  Forest,  111. 

National  Municipal  Review.  2:681.  O.  '13.  Springfield,  Ohio, 
charter. 

National  Municipal  Review.  3:44-8.  Ja.  '14.  Coming  of  the  city 
manager  plan. 

National  Municipal  Review.  4:266-72.  Ag.  '15.  Comment  on  the 
Dayton  charter.    Lent  D.  Upson. 
Reprinted.      See    p.    58    of    this    volume. 

National  Municipal  Review.  4:  659.  O.  '15.  Grand  Rapids  to  have 
commission-manager  form. 

National  Municipal  Review.  5:56-65.  Ja.  '16.  The  Ashtabula 
plan  the  latest  step  in  municipal  organization.    A.  R.  Hatton. 

National  Municipal  Review.  5:195-210.  '16.  Professional  stand- 
ards  and  professional  ethics   in  the  new  profession  of  city 
manager.     R.   S.   Childs,  H.  M.  Waites,  and  others. 
Reprinted.     See  p.   84  of  this  volume. 

National  Municipal  Review.  5 :  325-6.  Ap.  '16.  Notes  on  the  meet- 
ing of  the  city  managers'  associationj  1915.    O.  E.  Carr. 


xxii  BIBLIOGRAPHY 

National  Municipal  Review.  5  ^.A,^t-^].  Jl.  'i6.  A  city  manager 
charter  for  East  Cleveland,  Ohio.    Mayo  Fesler. 

National  Municipal  Review.  6:84-7.  Ja.  '17.  Proposed  new  char- 
ter of  Alameda.    William  J.  Locke. 

National  Municipal  Review.  6:105.  Ja.  '17.  Alameda  County 
manager  charter. 

National  Municipal  Review.  6:277-8.  Mr.  '17.  San  Diego  County 
manager   charter. 

National  Municipal  Review.  7:45-8.  Ja  '18.  City  managers'  asso- 
ciation.    Ossian  E.  Carr. 

National  Municipal  Review.  7:158-63.  Mr.  '18.  City  managers  in 
conclave  assembled.     Harrison  Gray  Otis. 

National  Short  Ballot  Organization.  The  Short  Ballot  Bulletin. 
383  Fourth  Ave.,  New  York  City. 

National  Short  Ballot  Organization.  The  Commission-manager 
plan  of  municipal  government.  3rd  edition.  Reprints  from 
Loose-leaf  Digest  of  Short  Ballot  Charters.  383  Fourth  Ave., 
New  York  City. 

Newark,  N.  J.  The  Newark  News.  F.  4,  '15.  Sketch  of  city 
manager  plan  for  charter  revision  committee  of  that  city. 

New  RepubHc.  8:  135-7.  S.  9,  '16.  New  profession  of  city  man- 
ager.   R.  S.  Childs. 

Norwood,  Mass.  Town  manager  statute.  Chap.  197,  Acts  of 
(Massachusetts)   1914,  approved  March  18,  1914. 

Public.  16:604-5.  Je.  "^.T,  '13.    The  municipal  business  manager. 

Review  of  Reviews.  47:599-602.  My.  '13.  Public  administration, 
a  new  profession.    H.  S.  Gilbertson. 

Ryan,   Oswald.    Municipal  freedom.    Doubleday,   1915. 

Shaw,  Albert.  Municipal  government  in  England.  Johns  Hop- 
kins University,  1888. 

Short  Ballot  Bulletin.  Vol.  IV,  No.  i,  F.  '17.    The  First  County 
manager,  San  Diego  county,  California.    National  Short  Bal- 
lot Organization.    383  Fourth  Ave.,  New  York. 
Excerpt    reprinted.      See    p.     105    of    this    volume. 

Short  Ballot  Bulletin.  4:7.  O.  '17.  Commission-manager  cities. 
Corrected  to   November    7,    1917. 

Survey.  36:225.  My.  27,  '16.    New  model  for  city  charters. 
Surve3^   36:454.   Jl.   29,    '16.     Proposed    Grand    Rapids    charter. 
B.  P.  Merrick. 


BIBLIOGRAPHY  xxiii 

Texas  Municipalities.  2:49-53.  Ap.  '15.  Origin  and  theory  of  the 
city  manager  plan.     H.  G.  James. 

Paper  read  at  second  annual  convention  of  the   League  of  Texas  Mu- 
nicipalities, Houston,  November   10,  19:4. 

Texas  Municipalities.  2 :  69-76.  Jl.  '15.    Sherman  charter.    R.  L. 

Hall  and   F.  M.   Stewart. 
Texas  University  Bulletin.    (Municipal  research  series   No.  6.) 

F.  20,  '15.    What  is  the  city  manager  plan?  H.  G.  James. 
Upson,  Lent  D.     A  charter  primer.    Dayton  Bureau  of  Research. 

1914. 
Woodruff,    Clinton    Rogers.     City    government    by    commission. 

Appleton,   191 1. 
World   Almanac   and   Encyclopedia,    1918.   p.    766.    Commission- 
manager  plan.     1917. 

List   of  cities   revised  to   November    15,   1917. 
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H.  H.  Curran. 
Zueblin,    Charles.     American    Municipal    Progress.     Macmillan, 

1916. 

AFFIRMATIVE  REFERENCES 

American  City.  4:285-7.  Je.  '11.  The  Lockport  proposal,  a  city 
that  wants  to  improve  commission  government.    R.  S.  Childs. 

American  City.  8:373-80.  Ap.  '13.  The  representative  council 
plan  of  city  government ;  the  city  manager  plan  improved  by 
the  application  of  proportional  representation  to  the  election 
of  the  Council.    C.  G.  Hoag. 

American  City.  9:25-7.  Jl.  '13.  How  a  little  city  is  progressing 
under  a  city  commissioner,  Fredericksburg,  Va.  A.  T.  Em- 
brey. 

American  City.  10:39-40.  Ja.  '14.  City  manager  plan  no  novelty. 
H.  S.  Gilbertson. 

American  City.  11 :  11-13.  Jl.  '14.  City  manager  plan;  the  appli- 
cation of  business  methods  to  municipal  government. 

American  City.  13 :  538-9.  D.  '15.  Dayton's  exhibit  of  city  man- 
ager government.   L.  D.  Upson. 

American  City.  14 :  494-5.  Aly.  '16.  Council-manager  government 
at  Niagara  Falls.    O.  S.  Carr. 

American  City.  15:675-9.  D.  '16.  Year  of  commission-manager 
administration.    R.  A.  Craig. 

American  City.  (T.  and  C.  edition)  16:26-30.  Ja.  '17.  Borough 
manager  plan  in  Edgeworth,  Pa.  E.  A.  Beck. 


xxiv  BIBLIOGRAPHY 

American  City.  16:66.  Ja.  '17.  Lower  interest  rate  on  bonds  of 
Grinnell,  Iowa. 

American  City.  16:257-62.  Mr.  '17.  Centralized  government  for 
counties  and  cities.    Edward  W.  Williams. 

American  City.  16:267-8.  Mr.  '17.  Street  improvement  with  ex- 
ceptional economy  in  Fredericksburg,  Va.    R.  S.  Royer. 

American  Municipalities.  26: 1 13-14.  Ja.  '14.    City  manager  plan. 

American  Municipalities.  27:58-60.  My.  '14.  City  manager  plan 
for  Iowa.   Charles  P.  Chase. 

American  Municipalities.  27:93.  Je.  '14.  City  manager  plan  suc- 
cessful in  Clarinda,  Iowa. 

American  Political  Science  Review.  9:496-506.  Ag.  '15.  City 
manager  plan  in  Ohio.    L.  D.  Upson. 

American  Proportional  Representation  League.  Representative 
council  plan  of  city  government;  the  city  manager  plan  im- 
proved by  the  application  of  proportional  representation  to 
the  election  of  the  council.  C.  G.  Hoag.  Ap.  1913.  Haver- 
ford,  Pa. 

Annals  of  American  Academy.  Vol.  38.  N.  '11. 

As  revised  1914,  entitled  "Commission  government  and  the  city  manager 
plan,"  contains  the  following  articles:  The  principles  underlying  the  city 
manager  plan,  by  R.  S.  Childs;  The  proposal  for  a  school  of  municipal  ad- 
ministration at  the  University  of  Texas,  by  H.  G.  James;  Objections  to 
commission  government,  by  Walter  G.  Cooper;  The  city  manager  charter 
for  Dayton,  by  L.  D.  Upson;  Adoption  of  the  city  manager  plan,  by 
Ernest  E.  Bradford;  The  city  manager  plan  and  expert  city  management,  by 
H.  S.  Gilbertson;  Municipal  government  administered  by  a  central  manager 
— the  Staunton  plan,  by  John  Crosby;  The  Lockport  proposal,  by  F.  D, 
Silvernail. 

Cadillac  Evening  News.  Cadillac,  Mich.  F.  23,  '17.  Annual  report 
of  manager,  history  of  city  for  year — considerable  saving  to 
city  has  resulted  through  wise  handling  of  finances. 
Reprinted.     See   p.    154   of   this   volume. 

Case  and  Comment.  Vol.  xxiii,  No.  5.  O.  '16.  The  city  manager. 
H.  A.  Toulmin,  Jr. 

City  Manager  Association.  Proceedings.  1914  conference  at 
Springfield,  Ohio.  1915  conference  at  Dayton,  Ohio.  1916 
conference  at  Springfield,  Mass.  W.  L.  Miller,  secretary,  St. 
Augustine,  Fla. 

Civil  Service  Reform  League.  Proceedings.  1913 :  127-38.  The 
city  manager  plan,  its  contribution  to  the  growth  of  non- 
political  and  efficient  personnel  in  municipal  administration. 
H.  S.  Gilbertson.  , 


BIBLIOGRAPHY  xxv 

Collier's  Weekly.  52:5-6.  Ja.  3,  '14.  Business  managing  a  city. 
J.  F.  Marcosson. 

Commonwealth  Club  of  California.  Transactions.  10 :  507-46.  D. 
'15.  The  city  manager  plan  in  California.    T.  H.  Reed. 

Dayton  Bureau  of  Municipal  Research.  Shall  we  change  our 
city  government.  1913.    613  Schwind  Bldg.,  Dayton,  Ohio. 

Dayton,  (Ohio)  Journal.  F.  i,  '14.  A  Day  with  Dayton's  new 
city  manager. 

Engineering  and  Contracting.  39:  565-6.  My.  21,  '13.  The  growth 
of  the  city  manager  plan  of  municipal  government. 

Engineering  and  Contracting.  40:729.  D.  31,  '13.  Further  comment 
on  the  possibilities  of  the  city  manager  plan  in  municipal 
government. 

Engineering  and  Contracting.  42:503-4.  N.  25,  '14.  Results  in 
Abilene,  Kan.  in  sixteen  months  under  commission-manager 
government. 

Engineering  News.  71 :  831-2.  Ap.  16,  '14.  The  manager  plan  of 
municipal  government.   Kenyon  Riddle. 

Engineering  Record.  69:279-80.  Mr.  17,  '14.  Business  manage- 
ment for  cities.    H.  M.  Waite. 

Illinois  Municipal  League,  Proceedings.  1915 :  28-33.  City  man- 
ager plan.    L.  D.  Upson. 

Independent.  86 :  40.  Ap.  3,  '16.  City  manager  plan  debate.  R.  S. 
Fulton. 

Independent.  88:300.  N.  20,  '16.   Waite,  master  of  efficiency. 

Kansas  City  Star  (Kansas  City,  Mo.).  Ja.  23,  '15.  Year  made 
Dayton  over — comparisons  between  1913  with  its  hit-or-miss- 
management  and  1914  under  efficiency  in  city  government. 

Lawrence,  Kan.  Municipal  reference  bureau.  Commission  man- 
ager plan  of  city  government.    C.  A.  Dykstra. 

Literary  Digest.  48:147-8.  Ja.  24,  '13.  Driving  politics  out  of 
Dayton. 

Los  Angeles  Times.  D.  l,  '14.  How  city  manager  plan  works  out 
in  practice — impartial  statements  from  Da>i:on,  Ohio  and 
Phoenix,  Ariz. 

Minnesota,  League  of,  Municipalities.  Proceedings  of  second 
annual  convention  at  Mankato,  Minn.  Oct.  21-22,  1914.  City 
manager  plan  in  Morris,  Minn.    S.  O.  Siverts. 

Municipal  Engineering.  47:15-18.  Jl.  '14.  The  city  manager. 
Paul  E.  Kressly. 


xxvi  BIBLIOGRAPHY 

Municipal  Engineering.  49:52-6.  Ag.  '15.  Report  of  a  special 
committee  sent  by  the  chamber  of  commerce  of  Norfolk,  Va., 
to  study  the  forms  of  government  in  operation  in  Des  Moines 
and  Memphis  and  in  Dayton  and  Springfield,  Ohio.  Contains 
a  very  clear  and  condensed  account  of  the  advantages  and 
disadvantages  in  the  four  cities  named. 

Municipal  Journal.  26:822-3.  Je.  4,  '14.  The  city  manager  plan; 
how  it  operates  in  Dayton,  Ohio.    H.  M.  Waite. 

Municipal  Journal  and  Engineer.  35 :  379-80.  S.  18,  '13.  Spring- 
field's new  government.     G.  L.  Rinkliff. 

Municipal  Journal.  36:278-9.  F.  26,  '14.  City  manager  govern- 
ment, its  origin  in  Staunton,  Va.,  the  Staunton  ordinance; 
arguments  in  its  favor.    C.  E.  Ashburner. 

Municipal  Journal.  37:11.  Jl.  2,  '14.  Commission  manager  plan. 
R.  S.  Childs. 

Municipal  Journal.  ^4:112.   F.  9,  '18.     Believes  in  city  manager 
government. 

Municipal  Journal  and  Engineer.  Ag.  21,  '13.  Dayton's  new  gov- 
ernment. 

Municipal  World.  24:84.  Ap.  '14.  City  managers,  Dayton,  Ohio 
and  Springfield,  Ohio. 

National  Municipal  League.   The  Commission  plan  and  the  com- 
mission-manager plan  of  municipal  government;  an  analytical 
study  by  a  committee  of  the  League.    Majority  report.    North 
American  Bldg.,  Philadelphia.  1914. 
Reprinted.      See   p.    107   of   this  volume. 

National  Municipal  Review.  2:472.  Jl.  '13.  The  city  manager 
plan.    H.   S.   Gilbertson. 

National  Municipal  Review.  2:639-44.  O.  '13.    The  city-manager 
plan  of  government  for  Dayton.    L.  D.  Upson. 
Reprinted.      See    p.    137    of    this    volume. 

National  Municipal  Review.  3:115-16.  Ja.  '14.  Government  and 
administration,  the  city  manager  plan.    H.  S.  Gilbertson. 

National  Municipal  Review.  4 :  40-9.  Ja.  '15.  The  commission 
manager  plan.   H.  M.  "VVaite. 

Reprinted.  See  p.  131  of  this  volume. 
National  Municipal  Review.  4:371-82.  Jl.  '15.  How  the  commission 

manager  plan  is  getting  along.  R.  S.  Childs. 

Reprinted.  See  p.  iii  of  this  volume. 
National    Municipal   Review.    5:320-1.   Ap.    '16.     The  'Sandusky 

situation. 

Reprinted.     See   p.    196   of  this   volume. 


BIBLIOGRAPHY  xxvii 

National  Municipal  Review.  5:660.  O  '16.  Sherrill,  N.  Y.  City 
manager. 

National  Municipal  Review.  6:69-73.  Ja-  'i7-  How  the  commission 
manager  plan  is  getting  along.    R.  S.  Childs. 
Reprinted.       See    p.     123    of    this    volume. 

National  Municipal  Review.  6:242.  Mr.  '17.  City  manager  prog- 
ress during  1916. 

National  Municipal  Review.  6:238.  Mr.  '17.  Commission  man- 
ager plan  in  San  Jose.    Robert  C.  Brooks. 

National  Short  Ballot  Organization.  Certain  weakness  in  the 
commission  plan  of  municipal  government ;  why  the  commis- 
sion manager  plan  is  better.  383  Fourth  Ave.,  New  York  City. 
Reprinted.      See   p.    128   of   this   volume. 

National  Short  Ballot  Organization.  Commission  government 
with  a  city  manager.    383  Fourth  Ave.,  New  York  City. 

National  Short  Ballot  Organization.  Tangible  results  in  Dayton. 
383  Fourth  Ave.,  New  York  City. 

Newburgh  Daily  News.    Newburgh,  N.Y.  Ja.  9,  '17.    Manager's 
report  a  record  of  achievement. 
Reprinted.      See    p.    187    of    this    volume. 

Outlook.  104:50-1.  My.  10,  '13.  The  practical  short  ballot  in 
Sumter. 

Outlook.  104:887-9.  Ag.  23,  '13.  The  city  manager. 

Outlook.  113:805-8.  Ag.  2,  '16.  How  the  gem  city  plan  worked. 
H.  F.  Sherwood. 

Pacific     Municipalities.     30:452-72.     N    '16.     The    city    manager 
plan  in  San  Jose.    T.  H.  Reed. 

Reprinted.      See  p.    197   of   this   volume. 

Review  of  Reviews.  49:  144-5.  F-  'i4-  Progress  of  the  city  man- 
ager plan. 

Review  of  Reviews.  49:  714-17.  Je.  '14.  How  Dayton's  city  man- 
ager plan  is  working.  L.  D.  Upson. 

San  Jose  Mercury  Herald.  San  Jose,  Calif.  D.  15,  '16.  Ordi- 
nance committee  of  the  council  upholds  city  manager  in  policy 
of  appointments — city  manager  makes  report  of  five  months 
of  accomplishment. 

Sumter,  City  manager  plan  of  municipal  government.  Published 
by  the  Cham.ber  of  Commerce,  Sumter,  S.C.    F.  '13. 

Texas  Municipalities.  2:  10-17.  Je.  '14.  New  city  government,  the 
city  manager  plan  in  Texas.   H.  G.  James. 

Toulmin,  H.  A.,  Jr.   The  city  manager.  Appleton,  1915. 
Excerpts    reprinted.      See    p.    6^    of    this    volume. 


xxvHi  BIBLIOGRAPHY 

Town  Development.  Je.  '13.    The  Sumter  city  manager  plan. 

Town  Development.  Jl.  '13.  The  commission  manager  plan  in 
Dayton. 

Washington  League  of  Municipalities.  Proceedings  of  meeting 
in  Spokane,  Nov.  19-22,  1903.  p.  157-75-  H.  A.  Brauer,  secre- 
tary, University  of  Washington.  "Effective  features  of  com- 
mission and  city  manager  forms  of  municipal  government." 

World's  Work.  26:236-7.  Je.  '13.  Progress  of  simpler  municipal 
government. 

World's  Work.  26:614.  O  '13.  Dayton's  step  forward  in  city 
government. 

NEGATIVE  REFERENCES 

American  City.  9:523-5.  D.  '13.  The  town  manager  as  city  engi- 
neer.   Kenyon  Riddle. 

American  City.  10 :  37-8.  Ja.  '14.  Commission  form  vs.  city  man- 
ager plan :  a  word  of  caution.    E.  S.  Bradford. 

Dayton  Bureau  of  Municipal  Research.  Shall  we  change  our 
city  government.    Negative  arguments,  page  15. 

Engineering  News.  75 :  379.  F.  24,  '16.  The  city  manager's  ex- 
perience with  the  government  of  Abilene,  Kan. 

Independent.  86:40.  Ap.  3,  '16.  City  manager  plan  debate.  R.  S. 
Fulton. 

Municipal  Engineering.  49:52-6.  Ag.  '15.  Report  of  a  special 
committee  sent  by  the  Chamber  of  Commerce  of  Norfolk,  Va. 
Disadvantages  of  the  plan  in  Dayton  and  Springfield,  Ohio. 

Municipal  Journal.  42:383.  Mr.  '15,  '17.  County  manager  char- 
ter defeated  in  Napa,  Cal. 

Excerpts     reprinted.       See    pp.     233     and    234    of    this    volume. 

Municipal  Journal.  43:421.  Mr.  22,  '17.  Iowa  city  managers  re- 
sign. 

Excerpts    reprinted.      See    pp.    234,    235,    and    236    of    this    volume. 

Munro,  William  Bennett.  Principles  and  methods  of  municipal 
administration.  Macmillan,  1916.  Chap.  I.  The  quest  for  effi- 
ciency. 

National  Municipal  League.  The  commission  plan  and  the  com- 
mission manager  plan  of  municipal  government,  an  analytical 
study  by  a  committee  of  the  League.  Minority  report.  North 
American  Bldg.,  Philadelphia,  1914.  - 

Excerpt  reprinted.     See  p.  209  of  this  vplmne, 


BIBLIOGRAPHY  xxix 

National  Municipal  Review.  3:95-7.  Ja.  '14.    Defects  in  the  Day- 
ton charter.    H.  G.  James. 
Reprinted.      See  p.   215   of  this   volume. 

National  Municipal  Review.  4:371.  Jl.  '15.  How  the  commission 
manager  plan  is  getting  along.  R.  S.  Childs. 

National  Municipal  Review.  5 :  380.  Jl.  '16.     Some  recent  uses  of 
the  recall.    F.  Stuart  Fitzpatrick. 
Reprinted.      See   p.    218    of    this   volume. 

National  Municipal  Review.  5 :  660-2.  O.  '16.   Ashtabula's  experi- 
ences.  A.  R.  Hatton. 
Reprinted.     See  p.   220   of  this  volume. 

National  Municipal  Review.  6:19-30.  Ja.  '17.  The  evolution  of 
types  of  city  government  in  the  United  States.  Howard  Lee 
McBain. 

Excerpt   reprinted.      See   p.    212   of   this   volume. 

National  Municipal  Review.  6:69.  Ja.  '17.  How  the  commission 
manager  plan  is  getting  along.  R.  S.  Childs. 

National  Municipal  Review.  6:115.  Ja.  '17.  Suggested  recall  of 
City  Manager  Reed. 

Pasadena  Star  News.  (Pasadena,  Cal.)  Views  of  prominent  citi- 
zens on  the  proposed  manager  amendment — arguments  against 
city  manager  plan,  issues  Nov.  15-20,  1917. 
Excerpts    reprinted.      See    pp.    223    and    227    of    this    volume. 

Springfield  Union  (Springfield,  Mass.).  Arguments  in  opposi- 
tion to  the  proposed  city  manager  and  federal  charters  issued 
prior  to  Nov.  7,  1916. 

Excerpts    reprinted    from    issues    of    December    3    and    6,     19 16.       See 
p.    231    of    this    volume. 

Technical  World.     21 :  13-19.  Mr.  '14.      Democracy  chooses  an 

autocrat.    W.  W.  Renwick. 
Toulmin,   H.  A.,  Jr.  The  city  manager.    Appleton,   1915.   Chap. 

XIV.    Disadvantages. 


SELECTED  ARTICLES  ON  THE  CITY 
MANAGER  PLAN  OF  GOVERNMENT 

INTRODUCTION 

The  city  manager  plan,  sometimes  called  the  commission- 
manager  plan,  of  municipal  government  provides  for  a  single 
elective  commission  or  council,  having  legislative  and  super- 
visory powers  and  contributing  the  element  of  popular  repre- 
sentation to  the  city's  government.  The  distinguishing  feature 
of  the  plan  is  the  city  manager,  an  expert  in  municipal  adminis- 
tration appointed  by  the  commission  and  holding  office  at  its 
pleasure.  The  manager  is  the  executive  head  of  a  centralized 
and  simplified  administrative  organization  and  controls  the  ap- 
pointment and  removal  of  all  subordinates,  subject  to  civil  ser- 
vice restrictions.  The  position  of  city  manager  is  open  to  non- 
residents and  the  salary  is  fixed  by  the  commission  at  an  amount 
which  will  enable  the  city  to  command  the  services  of  men  of 
training  and  executive  ability. 

The  germ  of  the  American  city  manager  idea  was  first 
developed  in  Staunton,  Va.,  in  1908.  The  Virginia  state  consti- 
tution made  the  adoption  of  the  commission  plan  impossible,  but 
under  the  authority  of  Section  1038  of  the  Virginia  Code,  the 
city  council  passed  an  ordinance  creating  the  office  of  general 
manager.  This  general  manager  was  given  power  to  take  entire 
charge  of  the  administration  of  the  city  departments,  except 
those  reserved  to  school,  finance  and  auditing  committees. 
Staunton's  general  manager  has  supervision  of  highways,  parks, 
lights,  water  and  corrections.  He  is  the  purchasing  agent  and 
financial  advisor  to  the  council.  The  police  and  fire  departments 
are,  however,  under  the  control  of  the  mayor.  The  general 
manager  plan  has  been  a  distinct  improvement  and  is  now  well 
established  in  Staunton,  so  well  in  fact  that  the  editor  of  the 
Staunton  Daily  Leader  wrote  recently,  in   reply  to  an   inquiry 


2  CITY    MANAGER   PLAN 

regarding  local  opposition  to  the  city  manager  plan :  "The  city 
manager  plan  has  been  in  operation  here  so  long,  that  we  have 
forgotten  about  it.  Why,  years  ago,  we  even  ceased  to  protest 
when  some  fake  writer  arose  and  claimed  to  be  the  originator  of 
the  city  manager  idea.  The  last  answer  to  one  of  these  impos- 
tors appeared  in  the  Leader  three  years  ago." 

In  191 1,  a  bill  was  introduced  in  the  New  York  legislature 
which  received  much  publicity.  This  bill  set  forth  the,  so-called, 
"Lockport  plan"  to  combine  the  single  elective  board  feature  of 
the  commission  plan  with  the  appointive  manager  idea  of  Staun- 
ton, Va.  The  resulting  organization  was  similar  to  that  of  a 
private  business  corporation  with  its  board  of  directors  and 
general  manager.  The  council  consisted  of  four  members  and 
a  mayor  elected  by  the  people.  The  council  appointed  the  man- 
ager. The  manager  appointed  and  removed  administrative  offi- 
cers not  otherwise  provided  for  in  the  charter.  The  Lockport 
plan  embodied  the  initiative,  referendum,  and  recall.  Power  to 
pass  ordinances,  demand  reports  of  the  city  manager,  and  to 
exercise  limited  supervision  over  departments  was  conferred 
upon  the  council.  The  city  manager's  powers  and  duties  made 
him  administrative  head  of  the  city,  his  tenure  of  office  was  at 
the  pleasure  of  the  council,  he  was  to  execute  law  and  ordi- 
nances of  the  council,  he  was  to  appoint  and  direct  the  work  of 
all  subordinate  administrative  officers,  make  reports  and  recom- 
mendations to  the  council.  This,  the  first  complete  commission- 
manager  proposal  did  not  pass  the  legislature,  but  it  gave  con- 
siderable publicity  to  the  city  manager  idea. 

On  June  12,  1912,  the  people  of  Sumter,  S.  C,  voted  on  an 
option  between  the  commission  plan  and  the  city  manager  plan, 
adopting  the  manager  plan  by  a  majority  of  three  to  one.  The 
plan  put  into  operation  the  following  year  was  the  first  complete 
commission-manager  system  in  the  United  States.  Hickory, 
N.  C,  and  Morgantown,  N.  C,  became  interested  in  the  city  man- 
ager plan  and  charters  were  drafted  which  varied  slightly  from 
the  Lockport  proposal.  Both  plans  went  into  eflfect  in  May,  1913. 
The  spread  of  the  city  manager  movement  was  rapid.  Dayton, 
Ohio,  had  been  through  a  long  siege  of  wasteful  administration. 
The  Chamber  of  Commerce,  and  the  Bureau  of  Municipal  Re- 
search urged  the  city  manager  idea.  Their  work,  well  under 
way,  was   interrupted  by  the  flood.      When   the  first  board   of 


OF   GOVERNMENT  3 

charter  commissioners  was  elected,  the  ticket  nominated  by  the 
citizens  committee  and  pledged  to  the  city  manager  plan  was 
elected.  The  commission  drafted  the  Dayton  city  manager 
charter  which  was  adopted  on  August  12,  1913. 

Springfield,  Ohio,  adopted  a  charter  following  closely  the 
Dayton  model,  on  August  26,  1913.  In  October,  1913,  the  com- 
mission-manager plan  was  adopted  in  La  Grande,  Ore.,  and 
Phoenix,  Ariz.  On  November  18,  1913,  Amarillo,  Texas, 
abandoned  the  commission  plan  for  the  city  manager  plan.  In 
December,  1913,  city  manager  charters  were  adopted  in  La 
Grande,  Ore.,  and  Phoenix,  Ariz.,  and  in  January  of  the  next 
year,  Montrose,  Colo.,  and  Collinsville,  Okla.,  followed,  making 
seven  cities  in  which  city  manager  plan  went  into  effect  during 
that  month.  During  the  last  three  years  approximately  forty-five 
cities  have  adopted  city-manager  charters  and  as  many  other 
cities  and  towns  have  created  the  position  of  general  manager 
by  ordinance  and  brought  about  as  much  centralization  of  powers 
and  reorganization  of  administrative  departments  as  is  possible 
without  special  legislation  or  constitutional  amendment.  Grand 
Rapids,  Mich.,  population  112,000,  is  the  largest  city  except  Day- 
ton, to  adopt  the  plan,  which  goes  into  effect  there  in  July,  191 7. 
At  present  the  city  manager  movement  is  occupying  the  atten- 
tion of  charter  revision  committees  in  a  large  number  of  cities. 

Optional  charter  laws  permitting  cities  to  adopt  by  popular 
vote  the  city  manager  plan  as  an  option  to  other  simplified  forms 
of  government  have  been  passed  in  many  states.  The  Ohio 
optional  charter  law  was  passed  in  1913,  giving  cities  the  option 
of  the  federal,  commission,  and  commission-manager  plans. 
Similar  laws  were  passed  in  1914  in  New  York  and  Virginia  and 
in  1915  in  Iowa  and  Massachusetts.  City  manager  bills  were 
introduced  in  several  state  legislatures  in  1917,  and  have  been 
passed  in  Kansas,  Montana,  South  Dakota,  North  Carolina,  and 
Idaho.  The  Indiana  bill  died  in  the  senate  committee,  and  bills 
are  pending  in  New  Jersey  and  Nebraska. 

However,  not  all  campaigns  for  the  adoption  of  cit}^  manager 
charter  have  been  successful.  At  least  a  dozen  cities  have  re- 
fused for  one  reason  or  another  to  accept  the  new  manager 
principle.  Among  these  are  Berkeley  and  Pasadena,  California, 
where  the  issue  was  between  the  retention  of  a  commission  form 
which  had  proved  fairly  successful  and  the  adoption  of  the  man- 


4  CITY   MANAGER   PLAN 

ager  amendment.  In  Springfield,  Mass.,  the  federal  plan  was 
preferred  to  the  city  manager  plan  on  Nov.  7,  1916.  The  existing 
government,  which  has  been  in  operation  for  sixty  years,  is  the 
unwieldy  bicameral  type,  but  the  issue  was  not  drawn  between 
this  and  the  city  manager  plan.  Kansas  City,  Mo.,  defeated  a 
proposed  city  manager  charter  on  March  6,  1917.  The  charter 
was  opposed  by  the  saloon  organization,  by  a  minority  of  the 
members  of  the  board  of  freeholders  which  drafted  the  charter, 
and  also  by  the  mayor  and  his  organization.  The  mayor  has 
promised  to  appoint  a  new  charter  board.  Other  cities  which 
have  defeated  city  manager  proposals  are  Iowa  City,  Iowa,  Ar- 
kansas City,  Kan.,  Norman,  Okla.,  Ypsilanti,  Mich.,  Visalia,  Cal., 
Durham,  Charlotte  and  Wilmington,  N.  C,  and  Tiffin,  Ohio. 

A  few  small  municipalities  which  had  created  the  post  of  city 
manager  by  ordinance  have  found  the  arrangement  unsatisfac- 
tory. River  Forest,  111.,  discontinued  the  manager's  office  in 
1916.  Titusville,  Pa.,  employed  a  manager  for  two  years,  then 
discontinued  the  office  and  resumed  the  commission  plan.  Tuc- 
son, Ariz.,  operating  under  the  old  charter,  without  specific  law 
employed  a  manager  at  a  salary  of  $4,000  during  the  years  1915 
and  1916,  but  discontinued  the  office  in  January,  191 7.  No  city 
which  has  adopted  a  complete  city  manager  charter  has  yet 
abandoned  it. 

The  recent  proposal  of  county-manager  charters  for  San 
Diego  and  Napa  counties  in  California  is  an  interesting  exten- 
sion of  the  city  manager  principle.  Both  charters  were  defeated, 
but  the  fact  that  such  progressive  proposals  were  made  brightens 
the  outlook  for  simplified  and  efficient  county  government.  The 
government  of  the  county  under  the  proposed  San  Diego  charter 
was  to  be  vested  in  a  board  of  nine  supervisors,  nominated  from 
districts,  but  elected  at  large  for  terms  of  four  years,  five  elected 
one  year  and  four  two  years  later.  The  county  manager  was  to 
be  chosen  by  the  supervisors  from  a  list  submitted  by  the  civil 
service  commission.  In  the  manager  was  centralized  the  admin- 
istration of  county  affairs.  He  was  to  act  as  purchasing  agent, 
road  commissioner  and  surveyor.  The  appointing  power  of  the 
manager  would  have  been  large,  inasmuch  as  appointments  were 
for  the  most  part  to  be  made  by  the  supervisors.  But  for  most 
purposes  the  manager  would  have  had  actual  control  pf  the  ad- 
ministration.    The  county  manager  plan  is  included  in  the  pro- 


OF   GOVERNMENT  5 

gram  of  the  government  associations  of  Alameda,  Cal.,  and  of 
New  York  state. 

Cases  involving  the  constitutionality  of  city  manager  charters 
have  been  twice  decided  upon,  both  decisions  being  in  favor  of 
the  new  plan.  In  Kopczynski  v.  Schriber  (i6i  N.  W.,  238)  the 
validity  of  the  charter  of  Grand  Rapids,  Mich.,  was  brought  into 
question  on  the  ground  that  after  creating  the  office  of  mayor,  it 
conferred  certain  powers  on  the  city  manager  in  conflict  with 
those  of  the  mayor.  The  court  decided  that  the  charter  in  so 
far  as  it  provided  for  the  election  by  the  council  of  one  of  their 
own  members  as  mayor,  did  not  conflict  with  the  home  rule  act 
requiring  the  election  of  a  mayor,  since  the  word  election  is  not 
limited  in  its  meaning  simply  to  a  vote  of  the  people.  They 
decided  that  the  city  charter  did  not  conflict  with  the  constitu- 
tion and  was  not  invalid  in  its  entirety.  The  supreme  court  of 
Kansas  affirmed  the  constitutionality  of  the  recent  city  manager 
law  of  that  state  in  State  v.  Bentley. 

The  City  Managers'  Association  has  already  held  three  con- 
ventions. The  first  held  in  Springfield,  Ohio,  December  2,  3  and 
4,  1914,  was  small  but  enthusiastic.  The  association  was  or- 
ganized with  ten  charter  members.  The  second  convention  was 
held  in  Dayton,  Ohio,  November  15-17,  1915,  and  the  third  in 
Springfield,  Mass.,  November  20-23,  1916.  The  proceedings  of 
these  conventions  have  been  published  and  are  interesting  as 
showing  the  spirit  of  public  service  which  characterizes  the  new 
city  manager's  profession.  The  president  of  the  City  Managers' 
Association  is  O.  E.  Carr,  city  manager  of  Niagara  Falls,  N.  Y., 
and  the  secretary  is  W.  L.  Miller,  City  Manager  of  St.  Augus- 
tine, Fla. 

The  spread  of  the  city  manager  plan  has  given  a  great  impetus 
to  the  efforts  being  put  forth  by  colleges  and  universities  to 
train  men  for  the  public  service.  The  University  of  Michigan 
has  outlined  a  course  of  study  and  field  work  leading  to  the 
master's  degree  in  municipal  administration.  Columbia  Univer- 
sity, the  University  of  Texas  and  others  are  likewise  enlarging 
opportunities  in  this  field.  Not  only  have  opportunities  for  study 
of  municipal  science  increased,  but  the  new  city  manager's  pro- 
fession is  gradually  acquiring  standards  and  ethics  of  its  own. 
The  practice  of  importing  managers  from  out  of  town,  and  of 
transferring  of  managers  from  one  city  to  another  are  established 


6  CITY  MANAGER  PLAN 

facts  which  tend  to  promote  the  growth  of  the  new  profession. 
In  this  handbook  are  gathered  together  extracts  from  city 
manager  charters  and  statutes,  discussions  of  the  theory  and 
principles  of  the  new  plan,  arguments  favorable  to  the  plan,  a 
resume  of  high  spots  of  accomplishment  as  told  by  city  man- 
agers' reports,  arguments  in  opposition  to  the  plan  and  the  sto- 
ries of  cities  in  which  the  adoption  of  the  plan  has  been  accom- 
panied by  less  favorable  results. 

E,   C.  Mabie. 


DEFINITIONS  OF  THE  CITY  MANAGER  PLAN 

I. 

A  single  elective  board  (commission)  representative,  super- 
visory and  legislative  in  function,  the  members  giving  only  part 
time  to  municipal  work  and  receiving  nominal  salaries  or  none. 
An  appointive  chief  executive  (city  manager)  hired  by  the  board 
from  anywhere  in  the  country  and  holding  office  at  the  pleasure 
of  the  board.  The  manager  appoints  and  controls  the  remain- 
ing city  employes,  subject  to  adequate  civil  service  provisions. — 
By  National  Municipal  League's  Committee  on  Commission 
Form  of  Government. 

II. 

The  city  manager  is  an  appointive  officer  selected,  by  reason 
of  his  peculiar  knowledge  of  municipal  affairs  and  because  of 
his  administrative  ability  to  fill  the  position  of  chief  executive  of 
a  vast  public  corporation,  with  little  restriction  upon  his  power, 
and  with  only  one  command — produce  results. — H.  A.  Toulmin, 
Jr.,  in  "The  City  Manager." 

III. 

Any  person  who  is  the  administrative  head  of  a  municipality 
appointed  by  its  legislative  body." — Constitution  of  The  City 
Managers'  Association. 

IV. 

J .     Unification  of  Powers. 

All  corporate  powers  to  be  vested  in  a  single  group  of  elec- 
tive officers,  constituting  a  council  or  commission. 

The  unification  of  powers  is  essential  in  order  to  avoid  confusion  of 
responsibility.  There  should  be  no  other  elected  officers  in  the  city  gov- 
ernment. Every  power  of  the  city  should  be  possessed  by  the  council. 
This  makes  it  impossible  for  the  council  to  lay  the  blame  on  any  other 
officer  if  things  go  wrong.  If  there  is  no  one  who  can  hinder  the  council 
in  its  work  the  council  is  robbed  of  every  possible  excuse  and  is  obliged  to 
"face  the  music"  in  times  of  public  criticism. 

Unification  of  powers  is  a  basic  merit  of  the  commission  plan  and  must 
not  be  departed  from  in  the  city  manager  plan. 


8  CITY   MANAGER   PLAN 

2.     The  Short  Ballot. 

The  council  to  be  elected  in  one  of  the  following  ways : 

(a)  at  large  (if  the  number  of  members  to  be  chosen  at 

any  one  time  is  five  or  less). 

(b)  by  wards. 

(c)  by  proportional  representation. 

The  need  for  the  short  ballot  is  based  on  the  familiar  psychological 
difficulty  which  the  average  voter  will  have  in  remembering  more  than  a 
short  list  of  candidates.  Experience  with  non-partisan  ballots  and  party 
primary  elections  has  demonstrated  that  when  the  number  of  offices  is  five 
or  less,  each  voter  will  pick  out  his  own  ticket  to  suit  himself  and  thus 
express  a  genuine  personal  opinion  with  every  mark  of  his  pencil.  On  the 
other  hand,  if  the  number  to  be  chosen  exceeds  five,  the  average  voter  will 
accept  some  ready  made  ticket  devised  for  him  by  a  civic  club  or  a  party 
machine,  which  has  been  promoted  and  advertised  en  bloc.  The  real  selec- 
tion and  control  of  public  officers  then  shifts  from  the  voters  to  the  makers 
of  the  tickets,  who  thus  acquire  an  influence  that  is  capable  of  great  abuse. 
In  a  large  city  of  upwards  of  150,000,  the  mere  size  of  the  electoral 
unit  acts  as  a  discouragement  to  independent  candidates  of  moderate  means 
and  gives  advantage  to  organized  standing  political  organizations,  inasmuch 
as  the  task  of  improvising  an  equally  effective  impromptu  vote-getting  or- 
ganization is  too  much  for  the  resources  of  the  individual  candidate.  In 
large  cities,  therefore,  ward  election  or  proportional  representation  is 
advised,  as  a  genuinely  free  and  open  competition  for  office  is  more  likely 
to  ensue. 

Ward  elections  have  a  bad  name  in  this  country,  yet  they  are  highly 
successful  in  England,  the  difference  being  that  ward  offices  in  this  country 
have  been  characteristically  unimportant  and  obscure.  In  the  city  manager 
plan,  however,  a  member  of  council  elected  from  the  ward  will  be  an  ex- 
ceedingly important  officer,  one  of  the  supreme  directors  of  the  city,  in 
fact,  and  not  overshadowed  by  a  mayor  or  any  other  city  officer  in  the 
campaign.  A  ward  election  under  these  circumstances  will  be  a  different 
matter  than  in  the  past. 

Proportional  representation  on  the  so-called  Hare  plan  is  in  successful 
operation  abroad,  although  it  is  as  yet  unfamiliar  to  Americans.  It  is 
undoubtedly  the  most  scientific  method  for  electing  a  truly  representative 
board.  A  city  which  under  the  ordinary  system  might  elect  a  board  of  nine 
Republicans  would,  under  proportional  representation,  elect  a  board  of  four 
Republicans,  two  Democrats,  two  Progressives  and  one  Socialist,  each  party 
securing  the  election  of  its  favorite  candidates  in  the  order  of  their  strength 
with  their  party  voters,  each  party  having  just  the  proportion  of  members 
that  it  is  entitled  to. 

The  advantage  of  proportional  representation  is  its  fairness  to  all  hands 
and  the  stability  which  it  gives  to  the  city  government  by  preventing  sharp 
changes  in  control  due  to  mere  fluctuating  majorities.  Proportional  repre- 
sentation is  impracticable  in  the  commission  plan,  but  the  city  manager 
plan  which  makes  the  council  a  representative  body  opens  the'  way  for  it 
in  America.  It  is  a  favorite  proposal  of  the  Socialists,  who  see  that  under 
this  system  they  would  poll  their  fullest  strength  without  losing  the  support 


OF    GOVERNMENT  9 

of  those  sympathizers  who  now  hate  to  waste  their  vote  on  a  party  that 
now  has  no  immediate  chance  of  victory. 

J.     Executive   Organisation. 

Non-political  executive  functions  delegated  to  an  official  ap- 
pointed by  the  commission  to  serve  during  their  pleasure,  to  be 
known  as  the  "city  manager"  or  by  other  appropriate  title ; 
position  of  city  manager  to  be  open  to  non-residents ;  salary  of 
city  manager  to  be  determined  by  the  council  and  variable  from 
time  to  time ;  the  city  manager's  executive  pow^ers  to  include 
appointment  and  removal  and  general  control  of  all  subordinates, 
subject  to  such  restrictions  (e.g.,  civil  service  regulation  and 
audit)  as  may  be  necessary  to  prevent  abuses  of  power  without 
diffusing  responsibility. 

The  city  manager  must  be  strictly  the  servant  of  the  council,  with  no 
independence.  The  council  must  have  absolute  control  of  him  and  not  be 
able  to  say  "it  is  the  city  manager's  fault  and  we  can't  overrule  him." 
The  city  manager  must  not  have  any  fixed  tenure  or  any  protection  against 
swift  removal,  save  possibly  the  right  to  an  explanation  of  the  reasons  for 
his  discharge  and  an  opportunity  to  present  his  defense. 

While  the  manager  will  be  expected  to  make  all  the  subordinate  ap- 
pointments, there  is  no  safe  way  of  preventing  the  council  from  having  and 
exercising  an  opinion  regarding  appointments.  On  the  other  hand,  in  the 
hope  of  keeping  questions  of  patronage  away  from  the  council,  it  would  be 
advisable  not  to  require  confirmation  of  appointments  by  the  council,  or  in 
fact  demand  in  the  charter  any  specific  action  by  the  council  in  such  matters. 
The  feature  of  the  Dayton  plan  which  provides  that  the  manager  may  be 
recalled  by  the  people  is  of  dubious  value,  since  it  interferes  with  the 
accountability  of  the  council  and  gives  opportunity  for  public  hostility  to 
be  directed  at  the  manager  rather  than  at  the  elected  board.  The  council 
should  not  be  given  this  opportunity  to  let  the  manager  be  the  scapegoat. 
Neither  should  the  council  be  given  this  opportunity  to  justify  their  reten- 
tion of  an  unsatisfactory  manager  by  saying  that  the  people  must  have 
approved  this  attitude,  since  they  did  not  recall  the  manager. 

■ — R.   S.   Childs  in   Beard's  "Digest   of  Short  Ballot  Charters:." 


CITY    MANAGER    PLAN 


%is>^ 


^5 


Al»l 


OF  GOVERNMENT  i 

MUNICIPALITIES  OPERATING  UNDER  CITY 
MANAGER  CHARTERS  AND  STATUTES* 


City  Population 

Alameda,  Cal 23.383 

Albion,  Mich S.833 

Alpena,  Mich 13,181 

Amarillo,  Texas   17,366 

Ashtabula,  Ohio 20,988 

Bakersfield,    Cal 12,727 

Big  Rapids,  Mich S,200 

Brownsville,  Texas    . .  12,736 

Cadillac,  Mich 9,673 

Collinsville,  Okla 1.324 

Dayton,   Ohio    140,000 

Denton,  Texas   6,500 

Durango,    Colo 6,000 

East    Cleveland,    Ohio  12,564 

Elizabeth   City,    N.    C.  9,501 

Grand   Rapids,   Mich..  125,759 

Hickory,  N.  C S.200 

Hot  Springs,  Ark 14,434 

Jackson,   Mich 34.370 

La  Grande,   Ore 4,843 

Lakeland,   Fla 3,719 

Manistee,    Mich 12,381 

Montrose,    Colo 3,252 

Morgantown,   N.    C. . .  2,713 

Newburgh,   N.    Y 29,313 

Niagara  Falls,   N.   Y..  36,240 

Petoskey,    Mich 4.778 

Phoenix,   Ariz 17,798 

Portsmouth,  Va 38,610 

San  Angelo,  Texas...  10,321 

Sandusky,   Ohio    20,160 

San  Jose,   Cal 37.994 

Santa  Barbara,  Cal...  11,659 

Sherman,  Texas   13,488 

Springfield,    Ohio....  50,804 

St.    Augustine,    Fla..  5,494 

Sumter,    S.    C 9,39^1 

Taylor,    Texas S,3i4 

Tyler,    Texas 11,629 

Watertown,  N.  Y 29,384 

Webster   City,   Iowa..  5,834 

Westerville,    Ohio    . . .  1,903 

Wheeling,    W.    Va 43,097 

Wichita,  Kan 67,847 

Yoakum,   Texas    4.657 


Date  in 
Effect 
Mr.,  1917 
Nov.,  1915 
Apr.,  191b 
Nov.,  1913 
Jan.,  igi6 
Apr.,  191S 
Mlay,  1914 
Oct.,  1915 
Mar.,  1914 
Feb.,  1914 
Jan.,  1914 
Apr.,  19 14 
Mr.,  1915 
Jan.,  191S 
Apr.,  191S 
Mr.,  1917 
May,  1913 
May,  1917 
Jan.,  191S 
Jan.,  1914 
May,  1914 
May,  1914 
Jan.,  1914 
May,  1913 
Jan.,  1916 
Jan.,  1916 
Apr.,  1916 
Apr.,  1914 
Jan.,  1917 
Apr.,  1916 
Jan.,  1916 
July,  1916 
Jan.,  1918 
Apr.,  1915 
June,  1914 
July,  191S 
Jan.,  1913 
Apr.,  1914 
Apr.,  Z91S 
Jan.,  1918 
Oct.,  191S 
Jan.,  1916 
July,  1917 
July,   1917 


Manager 


Manager's 
Salary 


Roland  Remley   . . .  $3,000 

H.   G.   Roby 2,500 

M.  H.  Hardin 3,000 

J.  W.  Prine 2,500 

Wallace  M.  Morgan  3,000 

Walter  Willets  ....  1,200 

F.  H.  Williams....  3,000 
T.  V.  Stephens....  2,500 

Qaude  Thorpe 1,500 

H.  M.  Waite 12,500 

S.  G.  Gary 2,000 

A.   F.  Hood 1,800 

J.  C.  Commander..  1,800 

G.  C.    Cummin 

J.    W.    Bellew 1,500 

A.   D.  M.   Hall 

Fred  Currey 2,400 

D.  F.  McLeod 2,100 

C.  E.  Ruger 2,000 

J.   E.  McDaniel . . . .  1,800 

C.  T.   Cain 1,200 

Henry  Wilson    . 5,000 

O.  E.  Carr 5,000 

Robert    D.    Tripp..  2,000 

R.  A.  Craig 5,000 

T.    B.    Shertzer....  4,000 

E.  L.  Wells,  Jr 2,500 

Kenneth    B.   Ward.  3,600 

Thomas  H.  Reed...  6,000 

O.  J.   S.   Ellingson.  2,400 

E.  Ashburner 6,000 

W.  L.  Miller 3,600 

E.    S.    Shuler 3,600 

W.  E.  Dozier 2,600 

Clay  Hight   3,000 

H.  G.  Vollmer 1,800 

R.    S.   Blinn 1.500 

G.   Nagle 

Louis  R.  Ash 10,000 


*  A  list  of  cities  that  have  adopted  the  city  manager  plan  since  this 
and  the  following  table  were  prepared  will  be  found  in  the  Appendix. 
Up-to-date  lists  are  published  from  time  to  time  in  the  Yearbook  of  the 
City    Managers    Association    and    other    sources. 


CITY  MANAGER  PLAN 


MUNICIPALITIES  OPERATING  UNDER  A  MOD- 
IFIED FORM  OF  CITY  MANAGER  PLAN' 

1  Note. — The  organization  of  these  municipalities  lacks  one  or  more  of 
the  essential  features  of  the  city  manager  plan.  In  many  the  manager's 
office  is  created  by  ordinance  instead  of  by  charter.  In  some  the  town 
organization  is  retained. — Editor. 

Manager's 
Salary 

$1,200* 

2,400 
2,400 
1,500 


City  or  Town  Population 

Abilene,  Kan 4,267 

Alhambra,  Cal 8,000 

Beaufort,   S.   C 3,S00 

Bentonville,  Ark 3,600 

Bloomiield,  Iowa    2,280 

Bristol,  Fa 10,390 

Charleston,  W.  Va 28,822 

Charlottesville,  Va.   . . .  7,000 

Clarinda,  Iowa 4,478 

Qark,  S.  D 1,200 

Cynthiana,    Ky 4,000 

Fredericksburg,   Va.    . .  5,874 

Glasgow,  Mont 5,000 

Glencoe,  111 3,100 

Glendale,    Cal 8,500 

Graham,  Va 4,000 

Grand   Haven,   Mich...  5,856 

GrinnelL    Iowa     5,o6i 

Grove  City,  Pa 4,000 

Highland  Park,  Texas 

High   Point,  N.   C 1^,353 

Holtville,  Cal 1,000 

Horicon,  Wis 2,200 

Huntington  Beach,   Cal  2,000 

Iowa  Falls^  Iowa 3,716 

Johnson    City,    Tenn...  10,534 

Largo,   Fla 800 

Morris,  Minn 2,500 

Mulberry,  Kan 1,662 

Norwood,  Mass 10,977 

Rock  Hill,  S.  C 7,216 

Roswell,  N.   Mex 6,172 

San  Diego,  Cal 51,115 

San   Rafael,   Cal 5,034 

SherriU,  N.  Y 1,500 

Staunton,   Va 11,485 

Tarboro,    N.   C 5,000 

Teag^ue,  Texas    5,000 

Tempe,  Ariz 3,000 

Terrell,  Texas    7,050 

Thomasville,  N.  C 5,Soo 

Westmount,  Quebec   . .  18,200 

Williamson,  W.  Va, ...  5,600 

Winchester,  Va 7,000 

Winnetka,   111 5, 500 


Date  in 
Effect 
June,  1913 
July,  1915 
Apr.,  1915 
Sept.,  1915 
July,  1912 
Jan.,  19 1 7 
May,  19 15 
Aug.,  19 1 3 
Apr.,  1913 
May,  1912 
Dec,  1915 
Sept.,  1912 
July,  1916 
Jan.,  1914 
May,  1914 
May,  1916 
Apr.,  191S 
Sept.,  19 16 
Ayr.,  1916 
1917 
May,   1915 

Apr.,  1914 
July,  1916 
Apr.,  1914 

July,  1909 
une,  1913 
Jan.,  1914 
Oct.,  1914 
Jan.,  1915 
Jan.,  1915 
May,  1914 
May,  1915 
Aug.,  19 1 5 
May,  1916 
Jan.,  1908 
Apr.,  1916 
Jan.,  1915 
1915 

May,  19x5 

Apr.,  1913 

Jan.,  19x6 

May,  X916 

Jan.,  19x5 


Manager 

Kenyon  Riddle  . 
Charles  E,  Hewes 
Harrison  G,  Otis 
Edgar   Masoner    , 

R,  C.  Bristow 680 

John  Roberts 2,000' 

B,  A,   Wise 3,300 

H,    A.    Stecker » 

T.  A.  Wilson 1,700 

J.   E.   Smith 960* 

Daniel  Durbin  ....      900 

R.    S.    Royer 3,ooo» 

C.    H.    Blitmay » 

H.   H.   Sherer 2,500 

Thomas  W.  Watson  1,800 

P,    C.    Nowlin 1,500 

I.    R,    Elliston 1,800 

Sam,  Crosby 2,400 

H.  B.  McCune 1,500' 

M.  Costello ' 

Archer  Lyon 2,500 

E.  L.  Kenny 

Robert  H.  Polzin. . .    1,000 
G.   W.  Spencer ,  2,400' 

E,  L,  Marriage,,,.    1,500* 
P,  F,  McDonald...    1,800 

G,  J,  Perkins 900 

S.  A.  Siverts 1,700' 

John  W.  Marion 1,000 

C.  A.  Bingham....   3,000' 

J.  G.  Barnwell 2,500* 

A.  G.  Jaffa 1,800 

F,  M,  Lockwood, , .  6,000' 

F,  J.  Boland 2,400 

C,  A,  Brown 

S,  D,  Holsinger. , , .   1,800 

J.   H.   Jacocks 1,500 

E.  B.  St.  Clair 1,680 

M.  C.  Browning 

Frank  D.  Jones ,   1,200 

G,  W,  Thompson * 

O,  H,  Booton 1,800 

Arthur    M.    Field..   2,000' 
R.  L.  Fitzgerald 2,400" 


^  Ordinance.     Manager  works  only  part  time, 

'  Manager  appointed  under  three  years'  contract  as  experiment, 

'  Ordinance. 

•  See  new  S.  D.  law  of  1917. 

•  Ordinance  providing  for  city  engineer  and  manager. 
•Resigned  April   1,   19x7. 

'  Limited  to  engineering. 

•  Town    government. 

•  Manager  of  operation  of  harbor,  streets,  buildings,  sewers,  water  sys- 
tem and  city  engineer. 

"  Business  manager  entered  into  contract  with  city.    Duties  not  defined. 


CITY  MANAGER  STATUTES 

DIGEST  OF  NEW  YORK  CITY  MANAGER 
STATUTE^ 

Provisions  applicable  to  each  plan 

[Note:  This  act  permits  any  city  of  the  second  and  third  class 
to  adopt  one  of  seven  simplified  forms  of  government.    Plan  C 
is  the  city-manager  form.] 
Governing  Body: 

Title:  Council. 

Terms  of  Office:  Four  years.   Partial  renewal  biennially. 

Mayor 

In  addition  to  other  powers  granted  under  the  specific  plans, 
the  mayor  has  custody  of  the  seal  of  the  city  and  is  required  to 
authenticate  the  acts  of  the  council  and  all  instruments  author- 
ized to  be  authenticated ;  exercises  other  powers  conferred  by  law 
upon  the  mayor  of  the  city,  if  not  inconsistent  with  this  act. 

Appointments 

Civil  Service:  The  state  law  applies.     Civil  service  commis- 
sion appointed  by  the  mayor  or  council. 
City  Clerk:  Appointed  by  the  council. 

Judicial  Officers 

If  elected  before  adoption  of  this  act  they  continue  to  be 
elected,  but  if  formerly  appointive,  will  be  appointed  by  the  city 
council  under  Plans  A,  B  and  C,  or  by  the  Mayor  under  Plans 
D,  E  and  F. 

Boards  of  Education 

Not  aifected  by  this  act;   controlled  in  all   respects  by  the 

charter  or  other  law  operative  before  adoption  of  this  act. 

1  An  act  of  the  Legislature,  approved  April  18,  1914,  applicable  to  any 
city  of  the  second  or  third  class,  when  adopted  at  a  general  or  special 
election  called  upon  petition  of  ten  per  centum  of  the  voters.  _  Based  upon 
vote  cast  for  mayor  at  last  previous  election  not  over  2,000  signatures  re- 
quired in  any  city.  Reprinted  from  "Loose  Leaf  Digest  of  Short  Ballot 
Charters." 


14  CITY    MANAGER   PLAN 

Election  Provisions 

The  general  laws  of  the  state  apply.  These  require  the  hold- 
ing of  partisan  primaries,  with  provision  for  independent  nom- 
inations. The  ballot  is  of  the  so-called  "Massachusetts"  type, 
with  the  party  emblem  opposite  the  name  of  each  candidate. 


No  provisions. 
No  provisions. 


Initiative 

Referendum 

Recall 


No  provisions. 
Plan  C.     (Limited  Council  with  Appointive  City  Manager). 

Governing  Body 

Number :  Five,  including  mayor,  in  third  class  cities ;  seven, 
including  mayor  in  second  class  cities ;  all  elected  at  large. 

Salaries 

Population  less  than  10,000:  three  hundred  dollars. 
Population  10,000  to  25,000 :  five  hundred  dollars. 
Population  25,000  to  50,000;  seven  hundred  dollars. 
Population  50,000  to  100,000:  one  thousand  dollars. 
Population    over    100,000:    twelve    hundred    dollars. 

A dministration — City  Manager 

Administrative  and  executive  powers  vested  in  a  city  man- 
ager, appointed  by  the  council,  to  hold  office  during  their  pleas- 
ure. The  duties  of  the  city  manager  are  to  (i)  be  the  admin- 
istrative head  of  the  city  government;  (2)  see  that  within  the 
city  the  laws  of  the  state  and  the  ordinances,  resolutions  and  by- 
laws of  the  council  are  faithfully  executed;  (3)  attend  all 
meetings  of  the  council,  and  recommend  for  adoption  such 
measures  as  he  shall  deem  expedient;  (4)  make  reports  to  the 
council  from  time  to  time  upon  the  affairs  of  the  city,  keep  the 
council  fully  advised  of  the  city's  financial  condition,  and  its 
future  financial  needs:  (5)  prepare  and  submit  to  thje  council  a 
tentative  budget  for  the  next  fiscal  year. 


OF   GOVERNMENT  IS 

Appointments 

The  council  determines  upon  the  number  and  the  powers, 
duties  and  compensation  of  officers  and  employees,  but  appoint- 
ments to  all  offices  and  employments  are  made  by  the  city 
manager. 

Mayor 

Is  required  to  preside  at  all  meetings  of  the  council ;  is  offi- 
cial head  of  the  city  for  the  service  of  civil  process,  and  under 
the  military  law,  and  for  all  ceremonial  purposes ;  has  no  veto 
power. 


DIGEST  OF  VIRGINIA  CITY  MANAGER 
STATUTE^ 

III.     CITY  MANAGER  PLAN. 

Governing  Body 

Number:  Population  less  than  10,000 — three  or  five,  elected 
at  large. 

Population  over  10,000 — five    to  eleven. 
Terms  of  Office:  Four  years. 

City  Manager 

Administrative  and  executive  powers.  The  administrative 
and  executive  powers  of  the  city,  including  the  power  of  ap- 
pointment of  officers  and  employees,  are  vested  in  an  official  to 
be  known  as  the  city  manager,  who  shall  be  appointed  by  the 
council  at  its  first  meeting,  or  as  soon  thereafter  as  practicable, 
and  hold  office  during  the  pleasure  of  the  council ;  he  shall  re- 
ceive such  compensation  as  shall  be  fixed  by  the  council  by 
ordinance. 

General  Duties  of  the  City  Manager. 

I.  The  city  manager  shall  see  that  within  the  city  the  laws, 
ordinances,  resolutions  and  by-laws  of  the  council  are  faithfully 
executed. 

^  An  act  of  the  legislature,  approved  March  13,  19 14,  applicable  to 
every  city  having  less  than  100,000  inhabitants,  when  adopted  at  a  special 
election  called  upon  petition  of  25  per  cent  of  the  electors  qualified  to  vote 
at  the  last  preceding  municipal  elction.  Reprinted  from  "Loose-leaf  Digest 
of   Short  Ballot   Charters." 


i6  CITY  MANAGER  PLAN 

2.  Attend  all  meetings  of  the  council,  and  recommend  for 
adoption  such  measures  as  he  shall  deem  expedient. 

3.  Make  reports  to  the  council  from  time  to  time  upon  the 
affairs  of  the  city ;  keep  the  council  fully  advised  of  the  city's 
financial  condition,  and  its  future  financial  needs. 

4.  Prepare  and  submit  to  the  council  a  tentative  budget  for 
the  next  fiscal  year. 

5.  He  shall  perform  such  other  duties  as  may  be  prescribed 
by  the  council  not  in  conflict  with  the  foregoing,  and  shall  be 
bonded  as  the  council  may  deem  necessary. 

(See  also  "Appointments"). 

Appointments 

Manner:  By  the  city  manager,  subject  to  removal  by  him 
(except  those  in  the  financial,  legal  and  judicial  departments  and 
the  clerical  and  other  attendants  of  the  council). 

Under  this  plan  the  council  selects  one  of  its  own  number 
to  preside  over  its  meetings,  who  becomes,  thereupon,  cx-officio 
mayor. 

Provisions  Applicable  to  Each  Plan 
Elections 

The  general  state  law  providing  for  partisan  elections  only, 
applies. 

Initiative,  Referendum,  and  Recall 

No  provisions. 


CITY  MANAGER  CHARTERS 

EXCERPTS  FROM  A  MODEL  CITY  MANAGER 
CHARTER' 

The  Council 

Sec.  I.  Creation  of  Council.  There  is  hereby  created  a  coun- 
cil which  shall  have  full  power  and  authority,  except  as  herein 
otherwise  provided,  to  exercise  all  the  powers  conferred  upon 
the  city. 

This  model  is  assumed  to  be  a  home  rule  charter  based  upon  provi- 
sions for  constitutional  municipal  home  rule.  When  this  or  a  similar 
charter  is  made  available  for  cities  by  statute  it  is  desirable  that  a  com- 
prehensive grant  of  powers  be  included  in  the  act  itself.  Otherwise  cities 
securing  such  a  charter  will  have  only  the  powers  enumerated  in  the  general 
law  of  the  state  and  be  subject  to  all  the  restrictions  and  inconveniences 
arising  from  that  method  of  granting  powers.  It  is  suggested,  therefore, 
that  the  following  grant  of  powers  be  included  in  any  such  special  statutory 
charter  or  optional  charter  law.  The  changes  of  language  necessary  to 
adapt  it  to  a  special  statutory  charter  readily  suggest  themselves: 

Section  — .  Cities  organized  under  this  act  shall  have  and  are  hereby 
granted  authority  to  exercise  all  powers  relating  to  their  municipal  affairs; 
and  no  enumeration  of  powers  in  any  law  shall  be  deemed  to  restrict  the 
general  grant  of  authority  hereby  conferred. 

The  following  shall  be  deemed  to  be  a  part  of  the  powers  conferred 
upon   cities  by   this  section: 

(a)  To  levy,  assess  and  collect  taxes  and  to  borrow  money  within  the 
limits  prescribed  by  general  law;  and  to  levy  and  collect  special  assessments 
for  benefits  conferred. 

(b)  To  furnish  all  local  public  services;  to  purchase,  hire,  construct, 
own,  maintain  and  operate  or  lease  local  public  utilities;  to  acquire,  by 
condemnation  or  otherwise,  within  or  without  the  corporate  limits,  property 
necessary  for  any  such  purposes,  subject  to  restrictions  imposed  by  general 
law  for  the  protection  of  other  communities;  and  to  grant  local  public  utility 
franchises   and   regulate   the   exercise  thereof. 

(c)  To  make  local  public  improvements  and  to  acquire,  by  condemna- 
tion or  otherwise,  property  within  its  corporate  limits  necessary  for  such 
improvements;  and  also  to  acquire  an  excess  over  that  needed  for  any  such 
improvement,  and  to  sell  or  lease  such  excess  property  with  restrictions,  in 
order  to  protect   and  preserve  the   improvement. 

(d)  To  issue  and  sell  bonds  on  the  security  of  any  such  excess  prop- 
erty, or  of  any  public  utility  owned  by  the  city,  or  of  the  revenues  thereof, 
or  of  both,  including  in  the  case  of  a  public  utility,  if  deemed  desirable  by 
the  city,  a  franchise  stating  the  terms  upon  which,  in  case  of  foreclosure, 
the  purchaser  may  operate  such   utility. 

(e)  To  organize  and  administer  public  schools  and  libraries,  subject  to 
the  general  laws  establishing  a  standard  of  education  for  the  state. 

(f )  To  adopt  and  enforce  within  their  limits  local  police,  sanitary  and 
other   similar   regulations   not   in   conflict   with    general   laws. 

Except  as  otherwise  provided  in  this  act  the  council  shall  have  authority 
to  determine  by  whom  and  in  what  manner  the  powers  granted  by  this 
section  shall  be  exercised. 

'Prepared  by  the  Committee  on  Municipal  Program  of  the  National 
Municipal  League,   March   15,    1916. 


i8  CITY    MANAGER    PLAN 

Sec.  2.     Composition  of  Council  and  Vacancies.     The  council 
shall  consist  of  members,"  who  shall  be  elected 

on  a  general  ticket  from  the  city  at  large  and  shall  serve  for  a 
term  of  four  years   from  days  after  their  election, 

and  shall  be  subject  to  recall  as  hereinafter  provided.  Vacancies 
in  the  council,  except  as  otherwise  provided  herein,  shall  be 
filled  for  the  unexpired  term  by  a  majority  vote  of  the  remain- 
ing members.' 

Sec.  3.  Powers  of  Council.  The  council  shall  be  the  judge 
of  the  election  and  qualification  of  its  own  members,  subject  to 
review  by  the  courts.  Any  member  of  council  who  shall  have 
been  convicted  of  a  crime  while  in  ofiice  shall  thereby  forfeit 
his  office.  Neither  the  council  nor  any  of  its  committees  or  mem- 
bers shall  dictate  the  appointment  of  any  person  to  ofiice  or  em- 
ployment by  the  city  manager,  or  in  any  manner  interfere  with 
the  city  manager  or  prevent  him  from  exercising  his  own  judg- 
ment in  the  appointment  of  officers  and  employes  in  the  adminis- 
trative service.  Except  for  the  purpose  of  inquiry  the  council 
and  its  members  shall  deal  with  the  administrative  service  solely 
through  the  city  manager,  and  neither  the  council  nor  any  mem- 
ber thereof  shall  give  orders  to  any  of  the  subordinates  of  the 
city  manager,  either  publicly  or  privately.  Any  such  dictation, 
prevention,  orders,  or  other  interference  on  the  part  of  a  mem- 
ber of  council  with  the  administration  of  the  city  shall  be  deemed 
to  be  a  misdemeanor,  and  upon  conviction  any  member  so  con- 
victed shall  be  subject  to  a  fine  not  exceeding  $  or 
imprisonment  for  a  term  not  exceeding  months,  or  both, 
and  to  removal  from  office  in  the  discretion  of  the  court. 

Sec.  4.  Election  by  Councils.  Rules.  Quorum.  The  council 
shall  elect  one  of  its  members  as  chairman,  who  shall  be   en- 

^  At  least  five  and  not  more  than  twenty-five,  the  precise  number  being 
determined  by  the  size  of  the  city.  If  more  than  five  are  to  be  elected  at 
one  time,  provision  must  be  made  to  have  the  members  after  the  first 
election  chosen  in  rotation.  For  example,  a  council  of  fifteen  with  a  six- 
year  term,  five  to  be  elected  every  two  years.  In  cities  of  more  than 
100,000  the  city  should  be  divided  into  large  districts,  and  the  size  of  the 
district  should  never  exceed  50,000  population,  except  in  cities  over  1,000,000. 
The  purpose  of  this  limitation  is  to  keep  the  size  of  the  district  down  to 
such  a  point  that  genuinely  free  competition  for  public  office  will  prevail, 
the  expense  of  a  thorough  canvass  being  not  too  great  for  an  independent 
candidate  who   may  lack  the  support   of  a  permanent   political  machine. 

If  proportional  representation  is  used,  it  should  be  so  arranged  that 
the  quota  needed  to   elect   a  candidate  shall   not   exceed    10,000   votes. 

•"•  In  determining  whether  a  salary  shall  be  paid,  and  if  so  how  much, 
it  must  be  borne  in  mind  that  the  duties  of  the  council  are  supervisory;  it 
being  the  object  of  this  charter  to  place  the  administrative  affairs  of  the 
city  in  the  hands  of  the  city  manager. 


OF    GOVERNMENT  19 

titled  mayor ;  also  a  cit}^  manager,  a  clerk  and  a  civil  service 
board,  but  no  member  of  the  council  shall  be  chosen  as  manager, 
or  as  a  member  of  the  civil  service  commission.  The  council  may 
determine  its  own  rules  of  procedure,  may  punish  its  own  mem- 
bers for  misconduct  and  may  compel  attendance  of  members. 
A  majority  of  all  the  members  of  the  council  shall  constitute  a 
quorum  to  do  business,  but  a  smaller  number  may  adjourn  from 
time  to  time. 

Sec.  5.     Organisation  and  Procedure  of  Council.    At  8  o'clock 
P.M.  on  the  first  Monday  in  (month)  following  a  regular  muni- 
cipal election,  the  council  shall  meet  at  the  usual  place  for  hold- 
ing meetings  at  which  time  the   newly  elected  councilmen  shall 
assume  the  duties  of  their  office.     Thereafter  the  council  shall 
meet  at  such  time  and  place  as  may  be  prescribed  by  ordinance. 
The  meetings  of  the  council  and  all  sessions  of  committees  of 
the  council  shall  be  public.     The  council  shall  act  only  by  ordi- 
nance or  resolution ;  and  all  ordinances  and  resolutions,  except 
ordinances  making  appropriations,  shall  be  confined  to  one  sub- 
ject which  shall  be  clearly  expressed  in  the  title.    The  ordinances 
making  appropriations  shall  be  confined  to  the  subject  of  appro- 
priations.    No  ordinance  shall  be  passed  until  it  has  been  read 
on  two   separate  days  or  the   requirement  of   readings  on  two 
separate  days  has  been  dispensed  with  by  a  four-fifths  vote  of 
the  members  of  the  council.     The  final  reading  shall  be  in  full, 
unless  the  measure  shall  have  been  printed  and  a  copy  thereof 
furnished  to  each  member  prior  to  such  reading.    The  ayes  and 
noes  shall  be  taken  upon  the  passage  of  all  ordinances  or  resolu- 
tions and   entered  upon  the  journal  of  the  proceedings  of  the 
council,  and  every  ordinance  or  resolution  shall  require  on  final 
passage  the  affirmative  vote  of  a  majority  of  all  the  members. 
No  member  shall  be  excused  from  voting  except  on  matters  in- 
volving the  consideration  of  his  own  official  conduct,  or  where 
his   financial   interests   are   involved.      Provision  shall  be    made 
for  the  printing  and  publication  in  full  of  every  ordinance  within 
ten  days  after  its  final  passage. 

Sec.  6.  Powers  of  Mayor.  The  mayor  shall  preside  at  meet- 
ings of  the  council  and  perform  such  other  duties  consistent 
with  his  office  as  may  be  imposed  by  the  council.  He  shall  be 
recognized  as  the  official  head  of  the  city  for  all  ceremonial 
purposes,  by  the  courts  for  the  purpose  of  serving  civil  processes, 
and  by  the  governor  for  military  purposes.     In  time  of  public 


20  CITY   MANAGER   PLAN 

danger  or  emergency  he  may,  with  the  consent  of  the  council, 
take  command  of  the  police  and  maintain  order  and  enforce  the 
laws.     During  his  absence  or  disability  his  duties  shall  be  per 
formed  by  another  member  appointed  by  the  council. 

Administrative  Service:  The  City  Manager 

Sec.  34.  The  City  Manager.  The  city  manager  shall  be  the 
chief  executive  officer  of  the  city.^  He  shall  be  chosen  by  the 
council  solely  on  the  basis  of  his  executive  and  administrative 
qualifications.  The  choice  shall  not  be  limited  to  inhabitants  of 
the  city  or  state." 

The  city  manager  shall  receive  a  compensation  of  not  less 
than  a  year.^    He  shall  be  appointed  for  an  indefi- 

nite period.  He  shall  be  removable  by  the  council.  H  removed 
at  any  time  after  six  months  he  may  demand  written  charges 
and  a  public  hearing  on  the  same  before  the  council  prior  to  the 
date  on  which  his  final  removal  shall  take  effect,  but  during  such 
hearing  the  council  may  suspend  him  from  office.  During  the 
absence  or  disability  of  the  city  manager  the  council  shall  desig- 
nate some  properly  qualified  person  to  perform  the  duties  of  the 
office. 

Sec.  35.  Powers  and  Duties  of  the  City  Manager.  The  city 
manager  shall  be  responsible  to  the  council  for  the  proper  admin- 
istration of  all  affairs  of  the  city,  and  to  that  end  shall  make 
all  appointments,  except  as  otherwise  provided  in  this  charter. 

^  While  the  manager  plan  herein  proposed  is  probably  the  most  advanced 
and  scientific  form  of  municipal  organization  yet  suggested,  it  is  of  the 
highest  importance  that  any  city  adopting  the  plan  should  not  omit  any  of 
the  other  principal  features  accompanying  it  in  this  draft.  Without  these 
provisions  the  manager  plan,  owing  to  its  concentration  of  executive  and 
administrative  authority  in  the  manager,  might  prove  to  be  susceptible  to 
perversion  in  the  interest  of  a  boss  in  cities  with  an  undeveloped  and 
inactive  public  opinion,  because  the  members  of  council  might  then  be 
elected  upon  a  state  pledged  beforehand  to  the  selection  of  some  particular 
candidate  as  manager. 

It  is  also  true  that  no  form  of  government  can  in  and  of  itself  produce 
good  results.  The  most  that  any  plan  can  do  is  to  provide  an  organization 
which  lends  itself  to  efficient  action,  and  which  at  the  same  time  places  in 
the  hands  of  the  electorate  simple  and  effective  means  for  controlling  their 
government  in  their  own  interests.  The  evils  in  city  government  due  to 
defective  and  undemocratic  organization  can  thus  be  removed;  beyond  that, 
results  can  only  be  achieved  through  the  growth  of  an  active  and  enlightened 
public   opinion. 

^  The  German  plan  of  publicly  advertising  for  a  burgomeister  and  heads 
of  departments  and  selecting  the  ones  who  best  show  the  qualifications  de- 
manded has  been  highly  successful. 

^  The  minimum  salary  would  vary  according  to  the  size  of  the  city  and 
the  responsibilities  of  the  oflice.  Dayton,  Ohio,  a  city  of  117,000  inhabitants, 
pays  its  city  manager  a  salary  of  $12,500  per  year. 


OF    GOVERNMENT  21 

Except  when  the  council  is  considering  his  removal,  he  shall  be 
entitled  to  be  present  at  all  meetings  of  the  council  and  of  its 
committees  and  to  take  part  in  their  discussion. 

Sec  36.  Annual  Budget.  The  city  manager  shall  prepare 
and  submit  to  the  council  the  annual  budget  after  receiving 
estimates  made  by  the  directors  of  the  departments. 

ADMINISTRATION  DEPARTMENTS 

Sec.  37.  Administrative  Departments  Created.  There  shall 
be  six  administrative  departments  as  follows :  Law,  health,  works 
and  utilities,  safety  and  welfare,  education^  and  finance,  the 
functions  of  which  shall  be  prescribed  by  the  council  except  as 
herein  otherwise  provided.  The  council  shall  fix  all  salaries, 
which  in  the  classified  service  shall  be  uniform  for  each  grade, 
as  established  by  the  civil  service  commission,  and  the  council 
may,  by  a  three-fourths  vote  of  its  entire  membership,  create 
new  departments,  combine  or  abolish  existing  departments  or 
establish  temporary  departments  for  special  work.^ 

Sec.  38.  Duties  of  Directors  of  Departments.  At  the  head 
of  each  department  there  shall  be  a  director.  Each  director  shall 
be  chosen  on  the  basis  of  his  general  executive  and  administra- 
tive experience  and  ability  and  of  his  education,  training  and 
experience  in  the  class  of  work  which  he  is  to  administer.  The 
director  of  the  department  of  law  shall  be  a  lawyer;  of  health, 
a  sanitary  engineer  or  a  member  of  the  medical  profession ;  of 

1  In  places  where  the  school  system  works  well  under  a  separate  organi- 
zation it  had  better  not  be  disturbed,  and  in  such  cases  the  department  of 
education  will   generally  have  to  be  omitted. 

-  The  number  of  departments  may  be  increased  or  diminished  according 
to  the  population  or  other  local  needs  of  a  given  city.  Where  it  is  increased 
it  will  probably  be  desirable  to  divide  the  department  of  safety  and  welfare 
into  two  departments,  and  in  some  cases  to  divide  the  department  of  safety 
into  police  and  fire  departments  respectively.  The  department  of  utilities 
may  be  separated  trom  department  of  public  works  when  (i)  such  utilities 
are  privately  owned,  so  that  their  administration  is  chiefly  regulative;  and 
(2)  in  large  cities  where  the  department  of  works  and  utilities  would  make 
too  large  a  department  or  where  it  seemed  desirable  to  put  all  the  revenue- 
producing  industries  in  one  department.  In  reducing  the  number  of  de- 
partments, those  of  law,  health  and  finance  might  be  cut  out  in  the  order 
named,  either  combining  them  with  remaining  departments  (as  health  with 
welfare  and  safety)  or  making  them  directly  subordinate  to  the  city 
manager. 

The  number  of  departments  can  be  kept  down  in  the  larger  cities  and 
reduced  in  the  smaller  ones  by  (i)  the  creation  of  department  bureaus  and 
(2)  where  so  complex  an  organization  as  a  bureau  is  not  needed  by  having 
the  proper  official  report  directly  to  the  city  manager  instead  of  to  a 
department   head. 

The  principle  underlying  the  formation  of  departments  and  bureaus 
should  be  twofold:  (i)  functional  grouping  and  (2)  tasks  which  demand 
the  time  and  capacity  of  the  highest  grade  of  administrative  heads — i.e.,  one 
first-class  full-time  man  to  head  each  department. 


22  CITY   MANAGER    PLAN 

works,  an  engineer;  of  education,  a  teacher  by  profession;  of 
safety,  and  welfare,  a  man  who  has  had  administrative  experi- 
ence; and  of  finance,  a  man  who  has  had  experience  in  banking, 
accounting  or  other  financial  matters;  or  in  each  case  the  man 
must  have  rendered  active  service  in  the  same  department  in 
this  or  some  other  city. 

Each  director  shall  be  appointed  by  the  city  manager  and  may 
be  removed  by  him  at  any  time;  but. in  case  of  such  removal, 
if  the  director  so  demands,  written  charges  must  be  preferred 
by  the  city  manager,  and  the  director  shall  be  given  a  public 
hearing  before  the  order  of  removal  is  made  final.  The  charges 
and  the  director's  reply  thereto  shall  be  filed  with  the  clerk  of 
council. 

Sec.  39.  Responsibility  of  Directors  of  Departments.  The 
directors  of  departments  shall  be  immediately  responsible  to  the 
city  managers  for  the  administration  of  their  departments  and 
their  advice  in  writing  may  be  required  by  him  on  all  matters 
affecting  their  departments.  They  shall  prepare  departmental 
estimates,  which  shall  be  open  to  public  inspection,  and  they  shall 
make  all  other  reports  and  recommendations  concerning  their 
departments  at  stated  intervals  or  when  requested  by  the  city 
manager. 

Sec.  40.  Powers  of  Subpoena.  The  council,  the  city  manager 
and  any  officer  or  board  authorized  by  them,  or  either  of  them, 
shall  have  power  to  make  investigations  as  to  city  affairs,  to 
subpoena  witnesses,  administer  oaths  and  compel  the  production 
of  books  and  papers. 

The  model  charter  also  contains  provision  for  recall,  initia- 
tive, referendum,  civil  service,  and  alternative  sections  relating 
to  nomination  and  election  methods,  including  proportional  rep- 
resentation and  preferential  voting. 

TYPICAL  CITY  MANAGER  CHARTER  OF 
SPRINGFIELD,  OHIO' 

We,  the  people  of  the  city  of  Springfield,  Ohio,  in  order  to 
obtain  the  benefits  of  local  self-government,  to  encourage  more 
direct  and  business-like  methods  in  the  transaction  of  our  mu- 

'  The  charter  of  Springfield,  Ohio,  is  one  of  the  best  drawn  of  the 
cit^  manager  charters.  It  is  in  accord  with  the  home-rule  provisions  of  the 
Ohio  constitution. 


OF    GOVERNMENT  23 

nicipal  affairs,  and  otherwise  to  promote  our  common  welfare, 
do  adopt  the  following  charter  of  our  city : 

Powers   of   the   City 

Sec.  I.  The  inhabitants  of  the  city  of  Springfield,  Ohio,  as 
its  limits  now  are  or  hereafter  may  be  established,  shall  continue 
to  be  a  body  politic  and  corporate,  to  be  known  and  designated 
as  "The  City  of  Springfield,  Ohio,"  and  as  such  shall  have  per- 
petual succession.  It  shall  have  and  may  exercise  all  powers 
which  now  or  hereafter  it  would  be  competent  for  this  charter 
specifically  to  enumerate,  as  fully  and  completely  as  though  said 
powers  were  specifically  enumerated  herein ;  and  no  enumeration 
of  particular  powers  by  this  charter  shall  be  held  to  be  exclusive. 

The  City  Commission 

Sec.  2.  Creation  and  Powers.  There  is  hereby  created  a  City 
Commission  to  consist  of  five  electors  of  the  city  elected  at 
large,  who  shall  hold  office  for  a  term  of  four  years  beginning 
January  first  after  their  election,  excepting  that  the  two  mem- 
bers elected  at  the  first  election  by  the  lowest  vote  shall  hold 
office  for  the  term  of  two  years  only. 

All  the  powers  of  the  city,  except  such  as  are  vested  in  the 
Board  of  Education  and  in  the  Judge  of  the  Police  Court,  and 
except  as  otherwise  provided  by  this  charter  or  by  the  consti- 
tution of  the  state,  are  hereby  vested  in  the  city  commission ; 
and,  except  as  otherwise  prescribed  by  this  charter  or  by  the  con- 
stitution of  the  state,  the  city  commission  may  by  ordinance  or 
resolution  prescribe  the  manner  in  which  any  power  of  the  city 
shall  be  exercised.  In  the  absence  of  such  provision  as  to  any 
power,  such  power  shall  be  exercised  in  the  manner  now  or 
hereafter  prescribed  by  the  general  laws  of  the  state  applicable 
to  municipalities. 

Sec.  3.  Qualifications  of  Members.  Each  member  of  the 
city  commission,  for  at  least  five  years  immediately  prior  to 
his  election  shall  have  been,  and  during  his  term  of  office  shall 
continue  to  be,  a  resident  of  the  city  of  Springfield,  Ohio,  and 
shall  have  the  qualifications  of  an  elector  therein.  He  shall  not 
hold  any  other  public  ofiice  or  employment  except  that  of  notary 
public  or  member  of  the  state  militia. 

No  candidate  for  the  office  of  city  commissioner  shall  make 
any  personal  canvass  among  the  voters  to  secure  his  nomination 


24  CITY    MANAGER    PLAN 

or  election,  or  the  nomination  or  election  by  any  other  candidate 
at  the  same  election,  whether  for  municipal,  county,  state  or 
other  office.  He  may  cause  notice  of  his  candidacy  to  be  pub- 
lished in  the  newspapers,  and  may  procure  the  circulation  of  a 
petition  for  his  nomination;  but  he  shall  not  personally  circulate 
such  petition,  nor  by  writing  or  otherwise  solicit  any  one  to 
support  him  or  vote  for  him.  He  shall  not  expend  or  promise 
any  money,  office,  employment  or  other  thing  of  value  to  secure 
a  nomination  or  election ;  but  he  may  answer  such  inquiries  as 
may  be  put  to  him  and  may  declare  his  position  publicly  upon 
matters  of  public  interest,  either  by  addressing  public  meetings 
or  by  making  written  statements  for  newspaper  publication  or 
general  circulation.  A  violation  of  these  provisions,  or  any  of 
them,  shall  disqualify  him  from  holding  the  office,  if  elected ;  and 
the  person  receiving  the  next  highest  number  of  votes,  who  has 
observed  the  foregoing  conditions,  shall  be  entitled  to  the  office. 

Sec.  4.  Vacancies.  Any  vacancy  in  the  city  commission,  ex- 
cept as  otherwise  provided  in  this  charter,  shall  be  filled  by  the 
remaining  members  by  the  vote  of  at  least  three.  If  the  term  of 
the  office  so  filled  does  not  expire  for  two  years  or  more  after 
the  next  regular  municipal  election  following  such  vacancy,  and 
such  vacancy  occurs  in  time  to  permit  it,  an  additional  commis- 
sioner, shall  then  be  elected;  and,  of  those  commissioners  elected 
at  such  election  the  one  having  the  lowest  vote  shall  succeed 
such  appointee  and  serve  the  unexpired  term.  In  the  event  of 
more  than  one  vacancy  to  be  so  filled  by  election,  the  same  pro- 
visions shall  apply. 

If,  by  reason  of  resignations,  deaths,  failure  to  elect,  or  other 
circumstance,  three  or  more  vacancies  exist  or  occur  at  the  same 
time  in  said  city  commission,  or  if  said  commission  fails  to  fill 
any  vacancy  within  ten  days  after  the  same  occurs,  then  the  trus- 
tees of  the  sinking  fund  and  the  members  of  the  civil  service 
commission  shall  convene  in  joint  session,  and  by  a  majority 
vote  of  the  members  of  the  joint  board  forthwith  make  such 
number  of  appointments  as  may  be  necessary  to  constitute  a 
city  commission  of  three  qualified  members,  which  three  mem- 
bers shall  at  once  proceed  to  fill  the  remaining  vacanies  as  here- 
inbefore provided.  The  clerk  of  the  trustees  of  the  sinking  fund 
shall  act  as  the  clerk  of  the  two  boards  in  joint  session,  and  shall 
cause  his  certificate  of  their  action  to  be  entered  on  the  journal 
of  the  city  commission. 


OF   GOVERNMENT  25 

Sec.  5.  Salary  and  Bonds.  Each  member  of  the  city  com- 
mission shall  receive,  except  as  hereinafter  provided,  a  salary  of 
five  hundred  dollars  a  year  payable  in  equal  monthly  install- 
ments; and  shall  give  bond  in  the  sum  of  ten  thousand  dollars 
with  some  bonding  company  regularly  accredited  to  do  business 
in  the  state  of  Ohio  as  surety  thereof,  to  the  approval  of  the 
sinking  fund  trustees ;  and  the  premium  of  each  such  bond  shall 
be  paid  by  the  city. 

Sec.  6.  President.  The  city  commission  shall  at  the  time  of 
organizing  elect  one  of  its  members  as  president  and  another  as 
vice-president  for  terms  of  two  years.  In  case  the  members  of 
the  city  commission,  within  five  days  after  the  time  herein  fixed 
for  their  organization  meeting,  are  unable  to  agree  upon  a  presi- 
dent or  a  vice-president  of  such  commission,  then  a  president, 
or  a  vice-president,  or  both,  as  the  occasion  may  require,  shall 
be  selected  from  all  the  members  of  such  commission  by  lot 
conducted  by  the  city  solicitor;  who  shall  certify  the  result  of 
such  lot  upon  the  journal  of  the  commission. 

The  president  shall  preside  at  all  meetings  of  the  commission 
and  perform  such  other  duties  consistent  with  his  office  as  may 
be  imposed  by  it ;  and  he  shall  have  a  voice  and  vote  in  its  pro- 
ceedings, but  no  veto.  He  may  use  the  title  of  mayor  in  any 
case  in  which  the  execution  of  legal  instruments  of  writing  or 
other  necessity  arising  from  the  general  law  of  the  state  so  re- 
quires but  this  shall  not  be  construed  as  conferring  upon  him 
the  administrative  or  judicial  functions  of  a  mayor  under  the 
general  laws  of  the  state. 

The  president  of  the  city  commission  shall  be  recognized  as 
the  official  head  of  the  city  by  the  courts  for  the  purpose  of 
serving  civil  process,  by  the  governor  for  the  purpose  of  military 
law,  and  for  all  ceremonial  purposes.  He  may  take  command  of 
the  police  and  govern  the  city  by  proclamation  during  times  of 
public  danger  or  emergency,  and  he  shall  himself  be  the  judge 
of  what  constitutes  such  public  danger  or  emergency.  The 
powers  and  duties  of  the  president  shall  be  such  as  are  conferred 
upon  him  by  this  charter,  together  with  such  others  as  are  con- 
ferred  by  the  city  commission  in  pursuance  of  the  provisions  of 
this  charter,  and  no  others. 

If  the  president  be  temporarily  absent  from  the  city,  or  I)e- 
come  temporarily  disabled  from  any  cause,  his  duties  shall  be 
performed  during  such  absence  or  disability  by  the  vice-presi- 


26  CITY    MANAGER    PLAN 

dent.  In  the  absence  of  both  president  and  vice-president  the 
other  members  of  the  city  commission  shall  select  one  of  their 
number  to  perform  the  duties  of  president. 

Sec.  7.  Clerk  and  Employees.  The  city  commission  shall 
appoint  a  clerk  who  shall  be  known  as  the  Clerk  of  the  City 
Commission,  and  who  shall  keep  records  and  perform  such  other 
duties  as  may  be  prescribed  by  this  charter  or  by  the  commission. 
It  may  also  appoint  and  employ  such  other  officers  and  employees 
of  its  body  as  are  necessary. 

Sec.  8.  Time  of  Meeting.  At  eight  o'clock  p.m.  on  the  sec- 
ond day  of  January  following  a  regular  municipal  election,  or 
if  such  day  be  Sunday,  on  the  day  following,  the  city  commission 
shall  meet  at  the  usual  place  for  holding  the  meetings  of  the 
legislative  body  of  the  city,  at  which  time  the  newly  elected 
commissioners  shall  assume  the  duties  of  their  office.  Thereafter 
the  city  commission  shall  meet  at  such  times  as  may  be  pre- 
scribed by  ordinance  or  resolution,  except  that  it  shall  meet 
regularly  not  less  than  one  evening  each  week.  The  president, 
any  two  members  of  the  commission,  or  the  city  manager,  may 
call  special  meetings  of  the  commission  upon  at  least  twelve 
hours  written  notice  to  each  member,  served  personally  or  left  at 
his  usual  place  of  residence.  All  meetings  of  the  city  commis- 
sion shall  be  public  and  any  citizen  shall  have  access  to  the 
minutes  and  records  thereof  at  all  reasonable  times.  The  com- 
mission shall  determine  its  own  rules  and  order  of  business  and 
shall  keep  a  journal  of  its  proceedings. 

Sec.  9.  Penalty  for  Absence.  For  each  absence  of  a  city 
commissioner  from  a  regular  meeting  of  the  commission,  there 
shall  be  deducted  a  sum  equalto  two  per  cent  of  the  annual 
salary  of  such  member.  Absence  from  five  consecutive  regular 
meetings  shall  operate  to  vacate  the  seat  of  a  member  unless 
the  absence  is  excused  by  the  commission  by  resolution  setting 
forth  such  excuse  and  entered  upon  the  journal. 

Sec.  id.  Legislative  Procedure.  A  majority  of  all  the  mem- 
bers elected  to  the  city  commission  shall  be  a  quorum  to  do  busi- 
ness, but  a  less  number  may  adjourn  from  day  to  day  and  com- 
pel the  attendance  of  absent  members  in  such  manner  and  under 
such  penalties  as  may  be  prescribed  by  ordinance.  The  affirm- 
ative vote  of  at  least  three  of  the  members  shall  be  n^ecessary 
to  adopt  any  ordinance  or  resolution ;  and  the  vote  upon  the  pas- 
sage of  all  ordinances  and  resolutions  shall  be  taken  by  "yeas" 
and  "nays"  and  entered  upon  the  journal. 


OF   GOVERNMENT  27 

Sec.  II.  Ordinance  Enactment.  Each  proposed  ordinance  or 
resolution  shall  be  introduced  in  written  or  printed  form,  and 
shall  not  contani  more  than  one  subject  which  shall  be  clearly 
stated  in  the  title ;  but  general  appropriation  ordinances  may 
contain  the  various  subjects  and  accounts  for  which  moneys  are 
to  be  appropriated.  The  enacting  clause  of  all  ordinances  passed 
by  the  city  commission  shall  be,  "Be  it  ordained  by  the  City 
Commission  of  the  City  of  Springfield,  Ohio."  The  enacting 
clause  of  all  ordinances  submitted  to  popular  election  by  the 
initiative  shall  be :  "Be  it  ordained  by  the  people  of  the  City  of 
Springfield,  Ohio." 

No  ordinance  unless  it  be  an  emergency  measure,  shall  be 
passed  until  it  has  been  read  at  two  regular  meetings  not  less 
than  one  week  apart,  or  the  requirement  of  such  reading  has 
been  dispensed  with  by  an  affirmative  vote  of  four  of  the  mem- 
bers of  the  commission.  No  ordinance  or  resolution  or  section 
thereof  shall  be  revised  or  amended,  unless  the  new  ordinance 
or  resolution  contain  the  entire  ordinance  or  resolution  or  sec- 
tion revised  or  amended;  and  the  original  ordinance,  resolution, 
section  or  sections  so  amended  shall  be  repealed. 

Sec.  12.  Emergency  Measures.  All  ordinances  and  resolu- 
tions passed  by  the  city  commission  shall  be  in  effect  from  and 
after  thirty  days  from  the  date  of  their  passage,  except  that  the 
city  commission  may,  by  an  affirmative  vote  of  four  of  its  mem- 
bers, pass  emergency  measures  to  take  effect  at  the  time  indicated 
therein. 

An  emergency  measure  is  an  ordinance  or  resolution  for  the 
immediate  preservation  of  the  public  peace,  property,  health,  or 
safety,  or  providing  for  the  usual  daily  operation  of  a  municipal 
department,  in  which  the  emergency  is  set  forth  and  defined  in  a 
preamble  thereto.  Ordinances  appropriating  money  may  be 
passed  as  emergency  measures,  but  no  measure  making  a  grant, 
renewal  or  extension  of  a  franchise  or  other  special  privilege, 
or  regulating  the  rate  to  be  charged  for  its  service  by  any  public 
utility,  shall  ever  be  so  passed. 

Sec.  13.  Record  and  Publication.  Every  ordinance  or  reso- 
lution upon  its  final  passage  shall  be  recorded  in  a  book  kept  for 
that  purpose,  and  shall  be  authenticated  by  the  signatures  of  the 
presiding  officer  and  the  clerk  of  the  commission.  Every  ordinance 
of  a  general  or  permanent  nature  shall  be  published  once  within 
ten  days  after  its  final  passage  in  the  manner  hereinafter  provided. 


28  CITY   MANAGER   PLAN 

Resolutions  and  ordinances  providing  for  public  improvements, 
to  pay  the  cost  of  which  special  assessments  are  to  be  made, 
need  not  be  published;  but  within  ten  days  after  the  passage  of 
each  a  notice  shall  be  published  as  follows,  the  same  being  in 
addition  to  the  notice  required  by  law  to  be  served  on  the  prop- 
erty owners. 

As  to  the  resolution  declaring  the  necessity  of  the  proposed 
improvement,  a  notice  shall  be  published  headed  "Notice  of  Pub- 
lic Improvement,"  stating  when  the  same  was  adopted  by  the 
city  commission,  and  setting  forth  the  general  nature  and  the 
extent  of  such  improvement,  including  any  change  of  street 
grade  that  is  to  be  made,  what  part  of  the  cost  thereof  is  to  be 
assessed  against  the  property  to  be  especially  benefited  thereby, 
and  when  water,  gas  or  other  street  connection  must  be  made. 

As  to  the  ordinance  determining  to  proceed  with  the  improve- 
ment, a  notice  shall  be  published  headed  "Notice  of  Determina- 
tion to  Proceed  with  Public  Improvement,"  stating  when  the  city 
commission  adopted  the  same,  describing  the  character  and  ex- 
tent of  the  improvement  in  general  terms,  and  setting  forth 
within  what  time  assessments  on  property  specially  benefited  may 
be  paid  in  cash,  and  for  what  period  and  at  what  interest  bonds 
will  be  issued  for  that  portion  of  the  assessment  not  so  paid. 

In  regard  to  the  ordinance  to  provide  for  the  issue  of  bonds, 
a  notice  shall  be  published  headed  "Notice  of  Bond  Issue  for 
Public  Improvement,"  stating  when  the  city  commission  adopted 
the  same,  describing  the  improvement  in  general  terms,  and 
stating  the  total  amount  of  bonds  to  be  issued,  in  what  denomina- 
tion, when  maturing,  how  to  be  dated  and  numbered,  the  rate 
of  interest,  when  and  where  payable,  and  the  lowest  price  at 
which  any  portion  of  such  bonds  not  taken  by  the  sinking  fund 
of  the  city,  or  of  the  city  school  district,  will  be  offered  at  public 
sale.  Wherever  practicable  notices  of  the  same  character  re- 
quired to  be  published  regarding  separate  improvements  shall  be 
combined  into  one  notice  under  a  single  heading. 

No  resolution  declaring  it  necessary  to  proceed  with  any 
public  improvement  shall  be  adopted  until  complete  plans,  speci- 
fications, profiles  and  estimates  have  been  submitted  to  the  city 
commission  and  been  approved  by  it ;  and  the  same,  or  a  copy 
thereof,  shall  thereafter  remain  on  file  in  the  office  of  the  city 
engineer  subject  to  inspection  by  the  public. 

Sec.  14.    Price  and  Mode  of  Publication.     All  of  the  above 


OF    GOVERNMENT  29 

mentioned  publications,  as  well  as  all  other  newspaper  publica- 
tions made  by  the  city,  shall  be  published  in  a  newspaper  or  news- 
papers of  general  circulation  in  the  municipality,  in  the  body  type 
of  the  paper  and  under  head  lines  in  eighteen  point  type,  speci- 
fying the  nature  of  the  publication ;  and  where  legally  permissible, 
such  publication  shall  be  made  but  once  and  in  one  newspaper 
only. 

The  newspaper  carrying  such  publication  shall  be  paid  a  price 
per  inch  of  space  used  and  the  lowest  and  best  rate  offered,  not 
exceeding  that  which  it  receives  from  regular  commercial  dis- 
play advertisers  for  the  quantity  of  space  used.  Whenever  it 
may  appear  to  the  city  commission  that  the  rates  offered  by  such 
newspapers  are  unfair,  such  other  means  of  securing  due  pub- 
licity may  be  employed,  in  lieu  of  newspaper  advertising,  as  the 
commission  may  by  resolution  determine. 

City  Manager 

Sec.  5.  Appointment.  The  city  commission  shall  appoint  a 
city  manager  who  shall  be  the  administrative  head  of  the  munic- 
ipal government  under  the  direction  and  supervision  of  the  city 
commission,  and  who  shall  hold  office  at  the  pleasure  of  the  city 
commission.  He  shall  be  appointed  without  regard  to  his  politi- 
cal beliefs  and  need  not  be  a  resident  of  the  city  at  the  time  of 
his  appointment.  During  the  absence  or  disability  of  the  city 
manager  the  city  commission  may  designate  some  properly  quali- 
fied person  to  execute  the  functions  of  the  office. 

Sec.  16.  Powers  and  Duties.  The  powers  and  duties  of  the 
city  manager  shall  be  : 

(o)     To  see  that  the  laws  and  ordinances  are  enforced. 

(&)  Except  as  herein  provided,  to  appoint  and  remove  all 
heads  of  departments,  and  all  subordinate  officers  and  employes 
of  the  city ;  all  appointments  to  be  upon  merit  and  fitness  alone, 
and  in  the  classified  service  all  appointments  and  removals  to  be 
subject  to  the  civil  service  provisions  of  this  charter. 

(c)  To  exercise  control  over  all  departments  and  divisions 
created  herein  or  that  hereafter  may  be  created  by  the  commis- 
sion. 

(d)  To  see  that  all  terms  and  conditions  imposed  in  favor 
of  the  city  or  its  inhabitants  in  any  public  utility  franchise  are 
faithfully  kept  and  performed ;  and  upon  knowledge  of  any  viola- 
tion thereof  to  call  the  same  to  the  attention  of  the  city  solicitor, 


30  CITY   MANAGER   PLAN 

who  is  hereby  required  to  take  such  steps  as  are  necessary  to 
enforce  the  same. 

(e)  To  attend  all  meetings  of  the  commission,  with  the 
right  to  take  part  in  the  discussions  but  having  no  vote. 

(/)  To  recommend  to  the  commission  for  adoption  such 
measures  as  he  may  deem  necessary  or  expedient. 

(g)  To  act  as  budget  commissioner  and  to  keep  the  city 
commission  fully  advised  as  to  the  financial  condition  and  needs 
of  the  city;  and 

(h)  To  perform  such  other  duties  as  may  be  prescribed  by 
this  charter  or  be  required  of  him  by  ordinance  or  resolution  of 
the  commission. 

Sec.  17.  Head  of  Departments.  Excepting  the  departments 
of  city  solicitor,  auditor,  treasurer,  sinking  fund  and  civil  ser- 
vice, and  until  otherwise  provided  by  the  city  commission,  any 
existing  department  now  under  the  control  of  a  special  board, 
such  as  library,  hospital  and  park,  the  city  manager  shall  be  the 
acting  head  of  each  and  every  department  of  the  city  until  other- 
wise directed  by  the  commission ;  but  with  the  consent  and  ap- 
proval of  the  commission,  he  may  appoint  a  deputy  or  chief  clerk 
to  represent  him  in  any  department  of  which  he  is  the  acting 
head.  No  member  of  the  city  commission  shall  directly  interfere 
with  the  conduct  of  any  department,  except  at  the  express  direc- 
tion of  the  commission. 

Sec.  18.  Platting  Commissioner.  The  city  manager  shall  also 
be  the  platting  commissioner  of  the  city  and  he  shall  exercise 
the  authority  and  discharge  the  duties  of  that  office  under  the 
provisions  of  the  general  law  of  the  state  applicable  thereto, 
except  as  the  same  may  be  modified  by  the  city  commission. 

Administrative  Officers  and  Departments 

Sec.  19.  City  Solicitor.  The  city  commission  shall  appoint  a 
city  solicitor  who  shall  hold  office  at  the  pleasure  of  the  com- 
mission. The  city  solicitor  shall  act  as  the  legal  adviser  to,  and 
attorney  and  counsel  for,  the  municipality  and  all  its  officers  in 
matters  relating  to  their  official  duties.  He  shall  prepare  all 
contracts,  bonds  and  other  instruments  in  writing  in  which  the 
municipality  is  concerned,  and  shall  endorse  on  each  his  ap- 
proval of  the  form  and  correctness  thereof ;  and  no  contract  with 
such  municipality  shall  take  effect  until  his  approval  is  endorsed 
thereon.    He  or  his  assistants  shall  be  the  prosecutor  or  prosecu- 


OF   GOVERNMENT  31 

tors  in  any  police  or  municipal  court,  and  shall  perform  such 
other  duties  and  have  such  assistants  and  clerks  as  the  city 
commission  may  authorize.  In  addition  to  such  duties  he  shall 
perform  such  other  duties  as  may  be  required  of  him  by  the  city 
commission,  as  well  as  such  as  may  be  required  of  city  solicitors 
by  the  general  laws  of  the  state  applicable  to  municipalities  and 
not  inconsistent  with  this  charter  or  with  any  ordinance  or  reso- 
lution that  may  be  passed  by  the  city  commission. 

Sec.  20.  City  Auditor.  The  city  commission  shall  appoint  a 
city  auditor  who  shall  hold  office  at  the  pleasure  of  the  commis- 
sion. The  city  auditor  shall  issue  all  warrants  for  payments  of 
money  by  the  city.  He  shall  keep  an  accurate  account  of  all 
taxes  and  assessments,  of  all  money  due  to,  and  all  receipts  and 
disbursements  by,  the  m.unicipalit}^  of  all  its  assets  and  liabilities, 
and  of  all  appropriations  made  by  the  city  commission.  At  the 
end  of  each  fiscal  year,  and  oftener  if  required  by  the  city  com- 
mission, he  shall  audit  the  accounts  of  the  several  departments 
and  officers,  and  shall  audit  all  other  accounts  in  which  the  mu- 
nicipality is  interested.  He  may  prescribe  the  form  of  reports  to 
be  rendered  to  his  department,  and  the  method  of  keeping  ac- 
counts by  all  other  departments,  and  he  shall  require  daily  reports 
to  be  made  to  him  by  each  department  showing  the  receipt  of  all 
moneys  by  such  department  and  the  disposition  thereof.  Upon 
the  death,  resignation,  removal  or  expiration  of  the  term  of 
any  officer,  the  city  auditor  shall  audit  the  accounts  of  such 
officer,  and  if  such  officer  shall  be  found  indebted  to  the  munici- 
pality he  shall  immediately  give  notice  thereof  to  the  city  com- 
mission, and  the  city  solicitor;  and  the  latter  shall  forthwith 
proceed  to  collect  the  same. 

In  addition  to  such  duties  the  city  auditor  shall  perform  such 
other  duties  as  may  be  required  of  him  b}^  the  city  commission, 
as  well  as  such  as  may  be  required  of  city  auditors  by  the  gen- 
eral laws  of  the  state  applicable  to  municipalities  and  not  incon- 
sistent with  this  charter  or  with  any  ordinance  or  resolution  that 
may  be  passed  by  the  city  commission. 

Sec.  21.  City  Treasurer.  The  city  commission  shall  appoint 
a  city  treasurer  who  shall  hold  office  at  the  pleasure  of  the  city 
commission.  The  office  of  city  treasurer  may  be  combined  with 
that  of  clerk  of  the  city  commission  or  with  any  other  office 
not  inconsistent  therewith.  The  city  treasurer  shall  be  the  cus- 
todian of  all  moneys    of  the  municipality,  and  shall  keep  and 


32  CITY   MANAGER   PLAN 

preserve  the  same  in  such  manner  and  in  such  place  or  places 
as  shall  be  determined  by  the  city  commission.  He  shall  pay  out 
money  only  on  warrants  issued  by  the  city  auditor. 

In  addition  to  such  duties  he  shall  perform  such  other  duties 
as  may  be  required  of  him  by  the  city  commission  as  well  as 
such  as  may  be  required  of  city  treasurers  by  the  general  laws 
of  the  state  applicable  to  municipalities  and  not  inconsistent  with 
this  charter  or  with  anj^  ordinance  or  resolution  that  may  be 
passed  by  the  city  commission. 

Sec.  22.  Purchasing  Agent.  The  city  commission  shall  desig- 
nate some  officer  of  the  city,  other  than  the  auditor  or  treasurer, 
to  act  as  its  purchasing  agent,  by  whom  all  purchases  of  supplies 
for  the  city  shall  be  made,  and  who  shall  approve  all  vouchers 
for  the  payment  of  the  same.  Such  purchasing  agent  shall  also 
conduct  all  sales  of  personal  property  which  the  commission  may 
authorize  to  be  sold  as  having  become  unnecessary  or  unfit  for 
the  city's  use. 

All  purchases  and  sales  shall  conform  to  such  regulations 
as  the  commission  may  from  time  to  time  prescribe ;  but  in  either 
case,  if  an  amount  in  excess  of  five  hundred  dollars  is  involved, 
opportunity  for  competition  shall  be  given.  Where  purchases  or 
sales  are  made  on  joint  account  of  separate  departments,  the 
purchasing  agent  shall  apportion  the  charge  or  credit  to  each 
department.  He  shall  see  to  the  delivery  of  supplies  to  each 
department,  and  take  and  retain  the  receipt  of  each  department 
therefor.  Until  the  city  commission  shall  otherwise  provide, 
the  city  manager  of  the  city  shall  act  as  such  purchasing  agent. 

Sec.  23.  Trustees  of  the  Sinking  Fund.  The  board  of  trus- 
tees of  the  sinking  fund  as  now  organized  and  existing  shall 
continue,  and  such  board  and  all  matters  pertaining  thereto 
shall  be  governed  by  the  general  laws  of  the  state  in  effect  Janu- 
ary 1st,  1914,  or  thereafter  enacted  and  applicable  thereto ;  ex- 
cepting that  the  members  of  said  board  shall  serve  without 
pecuniary  compensation.  The  present  members  of  said  board 
shall  continue  to  serve  for  their  unexpired  terms ;  but  their  suc- 
cessors shall  be  appointed,  and  vacancies  in  said  board  shall  be 
filled,  by  the  president  of  the  city  commission,  with  the  consent 
of  said  commission  entered  upon  its  journal. 

Sec.  24.  Civil  Service.  The  civil  service  commission  as  now 
organized  and  existing  shall  continue;  and  the  civil  service  of 
the  city,  and  such  commission,  and  all  matters  pertaining  thereto, 


OF  GOVERNMENT  33 

shall  be  governed  by  the  general  laws  of  the  state  in  eflfect  Janu- 
ary 1st,  1914,  or  thereafter  enacted,  which  are  applicable  thereto. 
The  present  members  of  said  board  shall  continue  to  serve  for 
their  unexpired  terms;  but  successors  to  present  members  shall 
be  appointed  and  vacancies  in  said  board  shall  be  filled  by  the 
city  commission,  and  the  members  of  the  civil  service  commis- 
sion shall   serve  without  pecuniary  compensation. 

Sec.  25.  Other  Boards  and  Departments.  All  other  admin- 
istrative departments  in  existence  January  1st,  1914,  shall  con- 
tinue until  otherwise  provided  by  the  city  commission,  and  all 
administrative  boards  in  charge  of  any  adimnistrative  depart- 
ment of  the  city  shall  continue  in  office,  and  their  successors  shall 
be  appointed  as  heretofore,  excepting  as  other  provision  is  made 
in  this  charter,  or  may  hereafter  be  made  by  the  city  commission. 

Excepting  the  officers,  boards,  commissions  and  departments 
hereinbefore  specially  mentioned  and  provided  for,  the  city  com- 
mission shall  have  power  to  establish,  create,  combine  or  abolish 
offices,  boards,  departments  or  divisions  when  in  its  opinion  the 
proper  administration  of  the  business  of  the  city  so  requires. 

Sec.  26.  Advisory  Boards.  The  city  commission  at  any 
time  may  appoint  an  advisory  board  or  boards  composed  of 
citizens  qualified  to  act  in  an  advisory  capacity  to  the  city  com- 
mission, the  city  manager  or  the  head  of  any  department,  with 
respect  to  the  conduct  and  management  of  any  property,  institu- 
tion or  public  function  of  the  city.  The  members  of  any  such 
board  shall  serve  without  compensation  for  a  time  fixed  in 
their  appointment,  or  at  the  pleasure  of  the  commission ;  and 
their  duty  shall  be  to  consult  and  advise  with  such  municipal 
officers  and  make  written  recommendations  which  shall  become 
part  of  the  records  of  the  city. 

Sec.  27.  Salaries  and  Bonds.  The  city  commission  shall  fix 
by  ordinance  the  salary  or  rate  of  compensation  of  all  officers 
and  employes  of  the  city  entitled  to  compensation,  other  than 
their  own ;  and  may  require  any  officer  or  employe  to  give  a 
bond  for  the  faithful  performance  of  his  duty,  in  such  an  amount 
as  it  may  determine,  and  it  may  provide  that  the  premium 
thereof  shall  be  paid  by  the  city. 

Sec.  28.  General  Disqualifications.  No  member  of  the  city 
commission,  the  city  manager  or  any  other  officer  or  employe 
of  the  city,  shall  directly  or  indirectly  be  interested  in  any  con- 
tract, job,  work  or  service  with  or  for  the  city;  nor  in  the  profits 


34  CITY   MANAGER   PLAN 

or  emoluments  thereof,  nor  in  the  expenditure  of  any  money 
on  the  part  of  the  city  other  than  his  fixed  compensation;  and 
any  contract  with  the  city  in  which  any  such  officer  or  employe 
is,  or  becomes,  interested  may  be  declared  void  by  the  city  com- 
mission. 

No  member  of  the  city  commission,  the  city  manager  or 
other  officer  or  employe  of  the  city  shall  knowingly  accept  any 
gift,  frank,  free  ticket,  pass,  reduced  price  or  reduced  rate  of 
service  from  any  person,  firm  or  corporation  operating  a  public 
utility  or  engaged  in  business  of  a  public  nature  within  the  city, 
or  from  any  person  known  to  him  to  have,  or  to  be  endeavoring 
to  secure,  a  contract  with  the  city.  But  the  provisions  of  this 
section  shall  not  apply  to  the  transportation  of  policemen  or 
firemen  in  uniform  or  wearing  their  official  badges,  when  the 
same  is,  or  may  be  provided  by  ordinance. 

Sec.  29.  Political  Activity.  Neither  the  city  manager,  nor 
any  person  in  the  employ  of  the  city  under  him  shall  take  any 
active  part  in  securing,  or  contribute  any  money  toward,  the 
nomination  or  election  of  any  candidate  or  candidates  for  the 
office  of  city  commissioner,  excepting  to  answer  such  questions 
as  may  be  put  to  him  and  as  he  may  desire  to  answer. 

Sec.  30.  Penalties.  The  provisions  of  the  two  last  preceding 
sections  shall  not  be  considered  exclusive,  but  as  in  addition 
to  any  other  provisions  of  the  general  law  of  the  state  applicable 
to  the  case ;  and  a  violation  of  any  provisions  of  either  of  such 
sections  shall  subject  the  offender  to  removal  from  his  office 
or  employment,  and  to  punishment  by  a  fine  of  not  exceeding 
one  hundred  dollars. 

Appropriations 

Sec.  31.  The  Estimate.  The  fiscal  year  of  the  city  shall 
begin  on  the  first  day  of  January.  On  or  before  the  first  day 
of  November  of  each  year  the  city  manager  shall  submit  to  the 
city  commission  an  estimate  of  the  expenditures  and  revenues  of 
the  city  departments  for  the  ensuing  year.  This  estimate  shall  be 
compiled  from  detailed  information  obtained  from  the  several 
departments  on  uniform  blanks  to  be  furnished  by  the  city 
manager.  The  classification  of  the  estimate  of  expenditures  shall 
be  as  nearly  uniform  as  possible  for  the  main  functional  divi- 
sions of  all  departments,  and  shall  give  in  parallel  columns  the 
following  information: 


OF   GOVERNMENT  35 

(o)  A  detailed  estimate  of  the  expense  of  conducting  each 
department  as  submitted  by  the  department. 

(b)  Expenditures  for  corresponding  items  for  the  last  two 
fiscal  years. 

(c)  Expenditures  for  corresponding  items  for  the  current 
fiscal  year,  including  adjustments  due  to  transfers  between  ap- 
propriations plus  an  estimate  of  expenditures  necessary  to  com- 
plete the  current  fiscal  year. 

(d)  Amount  of  supplies  and  material  on  hand  at  the  date  of 
the  preparation  of  the  invoice. 

(e)  Increase  or  decrease  of  requests  compared  with  the  cor- 
responding appropriations  for  the  current  year. 

(/)  Such  other  information  as  is  required  by  the  city  com- 
mission or  that  the  city  manager  may  deem  advisable  to  submit. 

(g)  The  recommendation  of  the  city  manager  as  to  the 
amounts  to  be  appropriated  with  reasons  therefore  in  such  de- 
tail as  the  city  commission  may  direct 

Sufificient  copies  of  such  estimate  shall  be  prepared  and  sub- 
mitted, that  there  may  be  copies  on  file  in  the  office  of  the  city 
commission  for  inspection  by  the  public. 

Sec.  32.  Appropriation  Ordinance.  Upon  receipt  of  such 
estimate  the  city  commission  shall  prepare  an  appropriation  ordi- 
nance but  before  finally  acting  upon  such  tentative  appropriation 
the  city  commission  shall  fix  a  time  and  place  for  holding  a  pub- 
lic hearing  upon  the  tentative  appropriation,  and  shall  give  public 
notice  of  such  hearing.  The  city  commission  shall  not  pass  the 
appropriation  ordinance  until  ten  daj's  after  such  public  hearing 

Sec.  33.  Transfer  of  Funds.  Upon  request  of  the  city  mana- 
ger the  city  commission  may  transfer  any  part  of  an  unencum- 
bered balance  of  an  appropriation  to  a  purpose  or  object  for 
which  the  appropriation  for  the  current  year  has  proved  insuffi- 
cient, or  may  authorize  a  transfer  to  be  made  between  items  ap- 
propriated to  the  same  office  or  department. 

Sec.  34.  Unencumbered  Balances.  At  the  close  of  each  fiscal 
year  the  unencumbered  balance  of  each  appropriation  shall  revert 
to  the  respective  fund  from  which  it  was  appropriated  and  shall 
be  subject  to  future  appropriation.  Any  accruing  revenue  of  the 
city,  not  appropriated  as  hereinbefore  provided,  and  any  balances 
at  any  time  remaining  after  the  purposes  of  the  appropriation 
shall  have  been  satisfied  or  abandoned,  may  from  time  to  time 
be  appropriated  by  the  city  commission  to  such  uses  as  will  not 


36  CITY   MANAGER   PLAN 

conflict  with  any  uses  for  which  specifically  such  revenues  ac- 
crued. No  money  shall  be  drawn  from  the  treasury  of  the  city, 
nor  shall  any  obhgation  for  the  expenditure  of  money  be  in- 
curred, except  pursuant  to  the  appropriations  made  by  the  city 
commission,  but  nothing  in  this  or  the  preceding  section  shall  be 
construed  to  authorize  the  application  of  revenue  derived  from  a 
public  utility  of  the  city  to  any  other  purpose  than  that  of  the 
utility  from  which  the  same  was  derived. 

Payments — Reports 

Sec.  35.  Payment  of  Claims.  No  warrant  for  the  payment 
of  any  claim  shall  be  issued  by  the  city  auditor  until  such  claim 
shall  have  been  approved  by  the  head  of  the  department  for 
which  the  indebtedness  was  incurred  and  by  the  city  manager, 
and  such  officers  and  their  sureties  shall  be  liable  to  the  munici- 
pality for  all  loss  or  damage  sustained  by  the  municipality  by 
reason  of  the  corrupt  approval  of  any  such  claim  against  the 
municipality.  Whenever  any  claim  shall  be  presented  to  the  city 
auditor  he  shall  have  power  to  require  evidence  that  the  amount 
claimed  is  justly  due  and  is  in  conformity  to  law  and  ordinance, 
and  for  that  purpose  he  may  summon  before  him  any  officer, 
agent,  or  employe,  of  any  department  of  the  municipality,  or  any 
other  person,  and  examine  him  upon  oath  or  affirmation  relative 
thereto. 

Sec.  36.  Certification  of  Funds.  No  contract,  agreement  or 
other  obligation  involving  the  expenditure  of  money  shall  be 
entered  into,  nor  shall  any  ordinance,  resolution  or  order  for  the 
expenditure  of  money  be  passed  by  the  city  commission,  or  be 
authorized  by  any  officer  of  the  city,  unless  the  city  auditor  shall 
first  certify  to  the  city  commission  or  to  the  proper  officer,  as 
the  case  may  be,  that  the  money  required  for  such  contract, 
agreement,  obligation  or  expenditure,  is  in  the  treasury,  to  the 
credit  of  the  fund  from  which  it  is  to  be  drawn,  and  not  appro- 
priated for  any  other  purpose,  which  certificate  shall  be  filed 
and  immediately  recorded.  The  sum  so  certified  shall  not  there- 
after be  considered  unappropriated  until  the  city  is  discharged 
from  the  contract,  agreement  or  obligation.  The  provisions  of 
this  section  shall  not  apply  to  contracts  or  proceedings  relating  to 
improvements  any  part  of  the  cost  of  which  is  to  be  paid  by 
special  assessments. 

Sec.  37.  Money  in  the  Fund.  All  moneys  actually  in  the 
treasury  to  the  credit  of  the  fund  from  which  they  are  to  be 


OF   GOVERNMENT  37 

drawn,  and  all  mone3's  applicable  to  the  payment  of  the  obliga- 
tion or  appropriation  involved  that  are  anticipated  to  come  into 
the  treasury  before  the  maturity  of  such  contract,  agreement,  or 
obligation,  from  taxes,  assessments,  or  license  fees,  or  from  sales 
of  services,  products  or  by-products  of  any  city  undertaking, 
and  moneys  to  be  derived  from  lawfully  authorized  bonds  sold 
and  in  process  of  delivery,  for  the  purposes  of  such  certificate 
shall  be  deemed  in  the  treasury  to  the  credit  of  the  appropriate 
fund  and  shall  be  subject  to  such  certification. 

Sec.  38.  Financial  Reports.  The  city  commission  shall  have 
furnished  them  a  monthly  balance  showing  in  detail  all  receipts 
and  expenditures  of  the  city  for  the  preceding  month;  and  the 
aggregate  receipts  and  expenditures  of  each  department  shall 
be  published  by  the  city  commission  in  such  manner  as  to  pro- 
vide full  publicity.  At  the  end  of  each  year  the  city  commission 
shall  have  printed  an  annual  report,  in  pamphlet  form,  giving 
a  classified  statement  of  all  receipts,  expenditures,  assets  and 
liabilities  of  the  city ;  a  detailed  comparison  of  such  receipts 
and  expenditures  with  those  of  the  year  preceding;  a  summary 
of  the  city  commission  proceedings  and  summary  of  the  opera- 
tions of  the  administrative  departments  for  the  previous  twelve 
months.  A  copy  of  this  report  shall  be  furnished  the  state  bureau 
of  accounting,  the  public  library  and  to  any  citizen  of  the  city 
who  may  apply  therefor  at  the  office  of  the  clerk  of  the  city 
commission. 

Improvements — Contracts 

Sec.  39.  Limitation  of  Assessments.  In  levying  special  as- 
sessments to  pay  any  part  of  the  cost  of  any  public  work  or 
improvement,  the  city  commission  shall  not  exceed  any  limitation 
as  to  the  amount  thereof  which  may  be  prescribed  by  the  general 
laws  of  the  state  applicable  to  municipalities  and  in  force  at  the 
time  it  is  determined  by  the  city  commission  that  any  such  work 
shall  be  done  or  improvement  made.  Unless  for  special  reasons 
which  shall  be  stated  in  the  ordinance  levying  an  assessment  or 
providing  for  the  issue  of  bonds  to  pay  any  part  of  the  cost 
of  any  such  improvement  to  be  made  pursuant  to  contract,  no 
such  ordinance  shall  be  passed,  or  assessment  levied  or  money 
borrowed,  until  bids  for  the  labor  and  material  have  been  re- 
ceived and  the  approximate  cost  of  the  improvement  accurately 
determined. 

Sec,  40.    Improvements  by  Direct  Labor.    Nothing  in  the  pre- 


38  CITY   MANAGER   PLAN 

ceding  section  shall  be  construed  to  prohibit  the  city  commission 
from  doing  any  public  work  or  making  any  public  improvement 
by  the  direct  employment  of  the  necessary  labor  and  the  purchase 
of  the  necessary  supplies  and  materials,  with  separate  accounting 
as  to  each  improvement  so  made,  but  the  city  commission  may 
upon  so  declaring  by  ordinance  or  resolution  cause  any  public 
work  or  improvement  to  be  done  or  made  in  such  manner. 

Sec.  41.  Sewer,  Water  and  Gas  Connections.  Before  paving 
or  otherwise  surfacing  or  resurfacing  any  street  or  alley  of 
the  city  the  city  commission  shall  determine  the  time  within 
which  sewer,  water,  gas  or  other  connections  shall  be  constructed, 
and  shall  give  notice  thereof  to  the  persons  or  corporations  re- 
quired to  make  the  same,  and  if  a  person  or  corporation  fails 
to  make  any  such  connection  when  so  required  no  permission 
to  make  the  same  shall  thereafter  be  granted  within  five  years 
from  the  completion  of  any  such  street  improvement  unless  with 
the  consent  of  four  of  the  commissioners  expressed  by  resolution 
adopted  at  a  regular  meeting  of  the  commission  and  stating  the 
reasons  therefor.  Nothing  herein  shall  be  construed  to  prohibit 
the  city  commission  from  providing  that  such  connections  may  be 
made  by  the  city  and  the  cost  thereof  assessed  against  the  lots 
and  lands  specially  benefited  thereby. 

Sec.  42.  Expenditures  in  Excess  of  $1,000.  When  an  ex- 
penditure, other  than  the  compensation  of  persons  employed  by 
the  city,  exceeds  one  thousand  dollars,  such  expenditure  shall 
first  be  authorized  and  directed  by  ordinance  of  the  city  com- 
mission, and  no  contract  involving  an  expenditure  in  excess  of 
such  sum  shall  be  made  or  awarded  except  upon  the  approval  of 
the  city  manager  and  the  city  commission. 

Sec.  43.  Time  of  Making  Contracts.  The  city  commission 
shall  not  enter  into  any  contract  which  is  not  to  go  into  full 
operation  during  the  term  for  which  all  the  members  of  such  city 
commission  are  elected. 

Sec.  44.  Modification  of  Contracts.  When  it  becomes  neces- 
sary in  the  opinion  of  the  city  manager,  in  the  prosecution  of 
any  work  or  improvement  under  contract,  to  make  alterations  or 
modifications  in  such  contract,  such  alterations  or  modifications, 
if  made,  shall  be  of  no  effect  until  the  price  to  be  paid  for  the  work 
and  material,  or  both,  under  the  altered  or  modified  coptract,  has 
been  agreed  upon  in  writing  and  signed  by  the  contractor  and  by 
the  city  manager  and  approved  by  the  city  commission. 


OF   GOVERNMENT  39 

Sec.  45.  Bids  in  Excess  of  Estimate.  In  no  instance  shall 
contracts  be  let  either  as  a  whole,  or  in  aggregate  if  bids  for 
parts  of  the  work  are  taken,  which  exceed  the  estimate  for  the 
improvement  contemplated. 

Sec,  46.  Contracts — When  Void.  All  contracts,  agreements 
or  other  obligations  entered  into  and  all  ordinances  passed,  or 
resolutions  and  orders  adopted,  contrary  to  the  provisions  of  the 
preceding  sections,  shall  be  void. 

Elections 

Sec.  47.  Time  of  Holding  Elections.  Regular  municipal  elec- 
tions shall  be  held  on  the  first  Tuesday  after  the  first  Monday 
in  November  in  the  odd  numbered  years.  Primary  elections 
shall  be  held  at  the  time  provided  by  the  general  election  laws  of 
the  state.  Any  matter  which  by  the  terms  of  the  charter  may  be 
submitted  to  the  electors  of  the  city  at  any  special  election  may  be 
submitted  at  a  primary  election  or  at  a  regular  municipal  election. 

Sec.  48.  Ballots.  The  ballots  used  in  all  elections  provided 
for  in  this  charter  shall  be  without  party  marks  or  designations, 
the  whole  number  of  ballots  to  be  printed  for  any  primary  or 
regular  election  for  the  nomination  or  election  of  candidates  for 
the  office  of  city  commissioner  shall  be  divided  by  the  number 
of  such  candidates,  and  the  quotient  so  obtained  shall  be  the 
number  of  ballots  in  each  series  of  ballots  to  be  printed.  The 
names  of  the  candidates  shall  be  arranged  in  alphabetical  order 
and  the  first  series  of  ballots  printed.  The  first  name  shall  then 
be  placed  last  and  the  next  series  of  ballots  printed,  and  this 
process  shall  be  repeated  until  each  name  shall  have  been  first. 
These  ballots  shall  then  be  combined  into  tablets  with  no  two 
of  the  same  order  of  names  together.  The  ballots  shall  in  all 
other  respects  conform  as  nearly  as  may  be  to  the  ballots  pre- 
scribed by  the  general  election  laws  of  the  state. 

Sec.  49.  Petitions  for  Place  on  Primary  Ballot.  Candidates 
for  the  office  of  city  commissioner  shall  be  nominated  only  by 
a  non-partisan  primary  election.  The  name  of  any  elector  of  the 
city  shall  be  printed  upon  the  primary  ballot  if  there  is  filed  with 
the  election  authorities  a  petition  in  accordance  with  the  follow- 
ing provisions,  to  wit : 

(a)  Such  petitions  shall  state  the  name  and  place  of  residence 
of  each  person  whose  name  is  presented  for  a  place  upon  the 
ballot  and  that  he  is  a  candidate  for  the  office  of  City  Commis- 
sioner for  the  City  of  Springfield,  Ohio. 


40  CITY   MANAGER   PLAN 

(b)  Such  petitions  shall  be  signed  by  electors  of  the  munici- 
pality equal  in  number  to  two  per  cent  of  the  total  number  of 
registered  voters  in  the  city. 

(c)  Such  petitions  shall  contain  a  provision  that  each  signer 
thereto  thereby  pledges  himself  to  support  and  vote  for  the 
candidate  or  candidates  whose  names  are  therein  presented  for 
a  place  upon  the  ballot,  and  each  elector  signing  a  petition  shall 
add  to  his  signature  his  place  of  residence,  with  street  and  num- 
ber, voting  precinct,  and  date  of  signing,  and  may  subscribe  to 
one  nomination  for  each  of  the  places  to  be  filled  and  no  more. 
All  signatures  shall  be  made  with  ink  or  indelible  pencil. 

(d)  The  signatures  of  all  the  petitioners  need  not  be  ap- 
pended to  one  paper,  but  to  each  separate  paper  there  shall  be 
attached  an  affidavit  of  the  circulator  thereof  stating  the  number 
of  signers  thereto,  that  each  person  signed  in  his  presence  on  the 
date  mentioned,  and  that  the  signature  is  that  of  the  person 
whose  name  it  purports  to  be. 

(e)  Such  petitions  shall  not  be  signed  by  any  elector  more 
than  fifty  days  prior  to  the  day  of  such  primary  election  and 
such  petition  shall  be  filed  with  the  election  authorities  not  less 
than  thirty  days  previous  to  the  day  of  such  election. 

Sec.  50.  Acceptance.  Any  person  whose  name  has  been  sub- 
mitted for  candidacy  by  any  such  petition  shall  file  his  accept- 
ance of  such  candidacy  with  the  election  authorities  not  later 
than  twenty-five  days  previous  to  such  election;  otherwise  his 
name  shall  not  appear  upon  the  ballot. 

Sec.  51.  Election.  The  candidates  for  nomination  to  the 
office  of  city  commissioner  who  shall  receive  the  greatest  vote 
in  such  primary  election  shall  be  placed  on  the  ballot  at  the  next 
regular  municipal  election  in  number  not  to  exceed  twice  the 
number  of  vacancies  in  the  city  commission  to  be  filled,  and  the 
candidates  at  the  regular  municipal  election,  equal  in  number 
to  the  places  to  be  filled,  who  shall  receive  the  highest  number 
of  votes  at  such  regular  municipal  election,  shall  be  declared 
elected.  A  tie  between  two  or  more  candidates  for  the  office  of 
city  commissioner  shall  be  decided  by  lot  under  the  direction 
of  the  election  authorities,  as  provided  by  the  general  election 
laws  of  the  state. 

Sec.  52.  General  Laws  to  Apply.  All  elections  shall  be  con- 
ducted, and  the  results  canvassed  and  certified,  by  the  election 
authorities  prescribed  by  general  election  laws,  and,  except  as 


OF   GOVERNMENT  41 

otherwise  provided  by  this  charter  or  by  ordinances  or  resolu- 
tions of  the  city  commission  hereafter  enacted,  the  general  elec- 
tion laws  shall  control  in  all  such  elections. 

The   Initiative 

Sec.  53.  Proposed  Petition,  Any  proposed  ordinances,  in- 
cluding ordinances  for  the  repeal  or  amendment  of  an  ordi- 
nance then  in  effect,  may  be  submitted  to  the  city  commission  by 
petition  signed  by  at  least  five  per  cent  of  the  total  number  of 
registered  voters  in  the  municipality.  All  petitions  circulated 
with  respect  to  any  proposed  ordinance  shall  be  uniform  in  char- 
acter, shall  contain  the  proposed  ordinance  in  full,  and  shall  have 
printed  or  written  thereon  the  names  and  addresses  of  at  least 
five  electors  who  shall  be  officially  regarded  as  filing  the  petition 
and  shall  constitute  a  committee  of  the  petitioners  for  the  pur- 
pose hereinafter  named. 

Each  signer  of  a  petition  shall  sign  his  name  in  ink  or  in- 
delible pencil  and  shall  place  on  the  petition,  opposite  his  name, 
the  date  of  his  signature  and  his  place  of  residence  by  voting 
precinct  and  by  street  and  number.  The  signatures  to  any  such 
petition  need  not  all  be  appended  to  one  paper,  but  to  each  such 
paper  there  shall  be  attached  an  affidavit  by  the  circulator  there- 
of, stating  the  number  of  signers  to  such  part  of  the  petition  and 
that  each  signature  appended  to  the  paper  is  the  genuine  signa- 
ture of  the  person  whose  name  it  purports  to  be,  and  that  it  was 
made  in  the  presence  of  the  affiant  and  on  the  date  indicated. 

Sec.  54.  Time  of  Filing.  All  papers  comprising  a  petition 
shall  be  assembled  and  filed  with  the  clerk  of  the  city  commission 
as  one  instrument,  within  one  hundred  and  twenty  days  from  the 
date  of  the  first  signature  thereon,  and  when  so  filed,  the  clerk 
shall  submit  the  same  to  the  city  commission  at  its  next  regular 
meeting  and  provision  shall  be  made  for  public  hearings  upon  the 
proposed  ordinance. 

Sec.  55.  Petition  for  Election.  The  city  commission  shall 
at  once  proceed  to  consider  such  petition  and  shall  take  final 
action  thereon  within  thirty  days  from  the  date  of  submission. 
If  the  city  commission  rejects  the  proposed  ordinance,  or  passes 
it  in  a  diff^erent  form  from  that  set  forth  in  the  petition,  or 
fails  to  act  finally  upon  it  within  the  time  stated,  the  committee 
of  the  petitioners  by  written  demand  filed  with  the  clerk  of 
the    city    commission    not    later    than    twenty    days    after    final 


42  CITY   MANAGER   PLAN 

action  or  inaction  by  the  city  commission,  may  require  that  the 
proposed  ordinance  be  submitted  to  a  vote  of  the  electors  in  its 
original  form,  if,  with  or  prior  to  such  demand,  a  petition  for 
such  election,  signed  after  the  final  action  or  inaction  of  the  city 
commission,  is  filed  with  such  clerk  bearing  additional  signatures 
of  five  per  cent  of  the  electors  of  the  city,  none  of  whom  were 
signers  of  the  first  petition.  Such  clerk  shall  forthwith  cause 
notice  of  the  filing  of  such  demand  and  petition  to  be  published 
in  some  newspaper  of  general  circulation  in  the  city,  and  shall 
also  within  five  days  certify  to  the  officers  having  control  of  elec- 
tions the  proposed  ordinance,  stating  whether  or  not  a  special 
election  is  demanded  in  the  petitions,  the  percentage  of  registered 
voters  who  signed  the  two  petitions  in  the  aggregate,  and  the 
date  on  which  he  published  the  notice  last  mentioned. 

Sec.  56.  Time  of  Holding  Election.  If  an  election  is  to  be 
held  not  more  than  three  months  nor  less  than  thirty  days  after 
the  publication  of  such  notice  by  the  clerk,  such  proposed  ordi- 
nance shall  be  submitted  to  a  vote  of  the  electors  at  such  election. 
If  no  election  is  to  be  held  within  the  time  aforesaid,  the  elec- 
tion officers  shall  provide  for  submitting  the  proposed  ordi- 
nance to  the  electors  at  a  special  election  to  be  held  not  later 
than  sixty  days  nor  earlier  than  thirty  days  after  the  publication 
of  such  notice,  if  the  petition  for  such  ordinance  and  the  petition 
for  such  election  so  demand,  and  if  the  signers  of  the  two  peti- 
tions amount  in  the  aggregate  to  at  least  twenty-five  per  cent  of 
the  registered  voters  of  the  city;  otherwise  the  same  shall  be  sub- 
mitted at  the  next  regular  or  special  election.  At  least  ten  days 
before  any  such  election  the  clerk  of  the  city  commission  shall 
cause  such  proposed  ordinance  to  be  published. 

Sec.  57.  Ballots.  The  ballots  used  when  voting  upon  any 
such  proposed  ordinance  shall  state  the  title  of  the  ordinance  to 
be  voted  on  and  below  it  the  two  propositions,  "For  the  Ordi- 
nance" and  "Against  the  Ordinance."  Immediately  at  the  left 
of  each  proposition  there  shall  be  a  square  in  which  by  making 
a  cross  (X),  the  voter  may  vote  for  or  against  the  proposed 
ordinance.  If  a  majority  of  the  electors  voting  on  any  such 
proposed  ordinance  shall  vote  in  favor  thereof,  it  shall  there- 
upon become  an  ordinance  of  the  city. 

Sec.  58.  Duty  of  City  Solicitor.  Before  any  ordinance  so 
proposed  shall  be  submitted  to  the  city  commission,  it  shall 
first  be  approved  as  to  its  form  by  the  city  solicitor,  whose  duty 


OF   GOVERNMENT  43 

it  shall  be  to  draft  such  proposed  ordinance  in  proper  legal 
language,  and  to  render  such  other  service  to  persons  desiring 
to  propose  such  ordinance  as  shall  be  necessary  to  make  the 
same  proper  for  consideration  by  the  city  commission. 

Sec.  59.  Amendments  and  Repeals.  No  ordinance  adopted 
by  an  electoral  vote  can  be  repealed  or  amended  except  by  an 
electoral  vote,  but  an  ordinance  to  repeal  or  amend  any  such 
ordinance  may,  by  resolution  of  the  city  commission,  be  sub- 
mitted to  an  electoral  vote  at  any  regular  election,  or  at  any 
special  municipal  election  called  for  some  other  purpose,  provided 
notice  of  the  intention  so  to  do  be  published  by  the  city  com- 
mission not  more  than  sixty  nor  less  than  thirty  days  prior  to 
such  election,  in  the  manner  required  for  the  publication  of 
ordinances.  If  an  amendment  is  so  proposed,  such  notice  shall 
contain  the  proposed  amendment  in  full.  Such  submission  shall 
be  in  the  same  manner,  and  the  vote  shall  have  the  same  effect, 
as  in  cases  of  ordinances  submitted  to  an  election  by  popular 
petition. 

The  Referendum 

Sec.  60.  Petition  for  Referendum.  No  ordinance  passed  by 
the  city  commission,  unless  it  be  an  emergency  measure  or  the 
annual  appropriation  ordinance,  shall  go  into  effect  until  thirty 
days  after  its  final  passage.  If,  at  any  time  vi^ithin  said  thirty 
days,  a  petition  signed  by  fifteen  per  cent  of  the  total  number  of 
registered  voters  in  the  municipality  be  filed  with  the  clerk  of  the 
city  commission,  requesting  that  any  such  ordinance  be  repealed 
or  amended  as  stated  in  the  petition,  it  shall  not  become  operative 
until  the  steps  indicated  herein  have  been  taken.  Such  petition 
shall  have  stated  therein  the  names  and  addresses  of  at  least  five 
electors  as  a  committee  to  represent  the  petitions. 

Referendum  petitions  need  not  contain  the  text  of  the  ordi- 
nance or  ordinances  the  repeal  of  which  is  sought;  but  shall  con- 
tain the  proposed  amendment,  if  an  amendment  is  demanded,  and 
shall  be  subject  in  all  other  respects  to  the  requirements  for  peti- 
tions submitting  proposed  ordinances  to  the  city  commission. 
Ballots  used  in  referendum  elections  shall  conform  in  all  reispects 
to  those  provided  for  in  section  fifty-seven  of  this  charter. 

Sec.  61.  Proceedings  Thereunder.  The  clerk  of  the  city  com- 
mission shall  at  its  next  meeting,  present  the  petition  to  the  city 
commission,  which  shall  proceed  to  reconsider  the  ordinance.    If 


44  CITY   MANAGER   PLAN 

within  thirty  days  after  the  filing  of  such  petition,  the  ordinance 
be  not  repealed  or  amended  as  requested,  the  city  commission 
shall  provide  for  submitting  the  proposed  repeal  or  amendment 
to  a  vote  of  the  electors,  provided  a  majority  of  the  committee 
named  in  the  petition  to  represent  the  petitioners  shall,  by  writing 
filed  with  the  clerk  of  the  city  commission  within  twenty  days 
after  the  expiration  of  the  said  thirty  days,  so  required.  In  so  do- 
ing the  city  commission  shall  be  governed  by  the  provisions  of 
section  fifty-six  hereof  respecting  the  time  of  submission  and  the 
manner  of  voting  on  ordinances  proposed  to  the  city  commission 
by  petition ;  excepting  that  the  question  of  calling  a  special  elec- 
tion for  such  purpose  shall  be  determined  by  the  demand  and 
number  of  signers  of  the  petition  requesting  the  repeal  or  amend- 
ment of  such  ordinance,  which  number  shall  be  twenty-five  per 
cent  of  registered  voters;  and  excepting  further  that  the  city 
commission  may  call,  and  fix  the  time  for,  a  special  election 
for  such  purpose,  if  in  its  judgment  the  public  interest  will  be 
prejudiced  by  delay. 

If,  when  submitted  to  a  vote  of  the  electors,  such  repeal  or 
amendment  be  approved  by  a  majority  of  those  voting  thereon, 
it  shall  thereupon  go  into  effect  as  an  ordinance  of  the  city; 
but  if  any  such  amendment  is  clearly  separable  from  the  remain- 
der of  the  ordinance  and  does  not  materially  affect  the  other 
provisions  of  such  ordinance,  all  sections  of  the  ordinance  except 
that  sought  to  be  amended  and  those  dependent  thereon  shall  take 
effect  as  though  no  referendum  of  any  portion  of  the  ordinance 
had  been  demanded. 

Sec.  62.  Referendum  on  Initiated  Ordinances — Conflict. 
Ordinances  submitted  to  the  city  commission  by  initiative  peti- 
tion and  passed  by  the  city  commission  without  change,  or  passed 
in  an  amended  form  and  not  required  to  be  submitted  to  a  vote 
of  the  electors  by  the  committee  of  the  petitions,  shall  be  sub- 
ject to  the  referendum  in  the  same  manner  as  other  ordinances. 
If  the  provisions  of  two  or  more  ordinances  adopted  or  approved 
at  the  same  election  conflict,  the  ordinance  receiving  the  highest 
affirmative  vote  shall  prevail. 

Sec.  63.  Emergency  Measures.  Ordinances  passed  as  emer- 
gency measures  shall  be  subject  to  referendum  in  like  manner  as 
other  ordinances,  except  that  they  shall  go  into  effect  at  the  time 
indicated  in  such  ordinances.  If,  when  submitted  to  a  vote  of 
the  electors,  an  emergency  measure  be  not  approved  by  a  ma- 


OF   GOVERNMENT  45 

jority  of  those  voting  thereon  it  shall  be  considered  repealed 
as  regards  any  further  action  thereunder;  but  such  measure  so 
repealed  shall  be  deemed  sufficient  authority  for  payment  in  ac- 
cordance with  the  ordinance  of  any  expense  incurred  previous 
to  the  referendum  vote  thereon. 

Sec.  64.  Preliminary  Action.  In  case  a  petition  be  filed 
requiring  that  a  measure  passed  by  the  city  commission  providing 
for  an  expenditure  of  money,  a  bond  issue  or  a  public  improve- 
ment be  submitted  to  a  vote  of  the  electors,  all  steps  preliminary 
to  such  actual  expenditure,  actual  issuance  of  bonds,  or  actual 
execution  of  a  contract  for  such  improvement,  may  be  taken 
prior  to  the  election. 

The  Recall 

Sec.  65.  Recall  Petition.  Any  or  all  members  of  the  city 
commission  may  be  removed  from  office  by  the  electors  by  the 
following  procedure. 

A  petition  for  the  recall  of  the  commissioner  or  commis- 
sioners designated,  signed  by  at  least  five  hundred  of  the  electors 
of  the  city,  and  containing  a  statement  in  not  more  than  two 
hundred  words  of  the  grounds  of  the  recall,  shall  be  filed  with 
the  city  auditor,  -who  shall  forthwith  notify  the  commissioner 
or  commissioners  sought  to  be  removed,  and  he  or  they,  with- 
in five  days  after  such  notice,  may  file  with  such  auditor  a 
defensive  statement  in  not  exceeding  two  hundred  words.  The 
city  auditor  shall  at  once  upon  the  expiration  of  said  five  days 
cause  sufficient  printed  or  typewritten  copies  of  such  petition, 
without  the  signatures,  to  be  made,  and  to  each  of  them  he  shall 
attach  a  printed  or  typewritten  copy  of  such  defensive  statement, 
if  one  is  furnished  him  within  the  time  provided.  He  shall  cause 
one  copy  of  such  petition  to  be  placed  on  file  in  his  office,  and 
provide  facilities  for  there  signing  the  same,  and  he  shall  also 
cause  one  copy  to  be  placed  in  each  of  the  several  fire  engine 
houses  of  the  city,  where  the  same  shall  be  in  the  custody  of  the 
captain  of  the  house,  who  shall  provide  facilities  for  there  sign- 
ing the  same.  The  city  auditor  shall  immediately  cause  notice  to 
be  published  in  some  newspaper  of  general  circulation  in  the 
city  of  the  placing  of  such  copies  of  such  petition. 

Such  copies  of  such  petition  shall  remain  on  file  in  the  several 
places  designated  for  the  period  of  thirty  days,  during  which 
time  any  of  them  may  be  signed  by  any  elector  of  the  city  in 


46  CITY   MANAGER    PLAN 

person ;  but  not  by  agent  or  attorney.  Each  signer  of  any  of 
such  copies  shall  sign  his  name  in  ink  or  indelible  pencil,  and 
shall  place  thereafter  his  residence  by  voting  precinct,  and  by 
street  and  number. 

Sec.  66.  Notice.  At  the  expiration  of  said  period  of  thirty 
days  the  city  auditor  shall  assemble  all  of  said  copies  in  his  office 
as  one  instrument,  and  shall  examine  the  same  and  ascertain  and 
certify  thereon  whether  the  signatures  thereto  amount  to  at 
least  fifteen  per  cent  of  the  registered  voters  of  the  city.  If  such 
signatures  do  amount  to  such  per  cent,  he  shall  at  once  serve 
notice  of  that  fact  upon  the  commissioner  or  commissioners 
designated  in  the  petition,  and  also  deliver  to  the  election  au- 
thorities a  copy  of  the  original  petition  with  his  certificate  as  to 
the  percentage  of  registered  voters  who  signed  the  same,  and  a 
certificate  as  to  the  date  of  his  last  mentioned  notice  to  the  com- 
missioner or  commissioners  designated  in  the  petition. 

Sec.  67.  Recall  Election.  If  the  commissioner  or  commis- 
sioners, or  any  of  them,  designated  in  the  petition,  file  with  the 
clerk  of  the  city  commission  within  five  days  after  the  last  men- 
tioned notice  from  the  city  solicitor,  his  or  their  written  resigna- 
tion, the  clerk  of  the  city  commission  shall  at  once  notify  the 
election  authorities  of  that  fact ;  and  such  resignation  shall  be 
irrevocable,  and  the  city  commission  shall  proceed  to  fill  the 
vacancy.  In  the  absence  of  any  such  resignation  the  election 
authorities  shall  forthwith  order  and  fix  a  day  for  holding  a 
recall  election  for  the  removal  of  those  not  resigning.  Any  such 
election  shall  be  held  not  less  than  thirty  nor  more  than  sixty 
days  after  the  expiration  of  the  period  of  five  days  last  men- 
tioned, and  at  the  same  time  as  any  other  general  or  special 
election  held  within  such  period ;  but  if  no  such  election  be  held 
within  such  period  the  election  authorities  shall  call  a  special 
recall  election  to  be  held  within  the  period  aforesaid. 

Sec.  68.  Ballots.  The  ballots  at  such  recall  election  shall  con- 
form to  the  following  requirements.  With  respect  to  each  person 
whose  removal  is  sought,  the  question  shall  be  submitted :  "Shall 
(name  of  person)  be  removed  from  the  office  of  city  commis- 
sioner by  recall?"  Immediately  following  each  such  question 
there  shall  be  printed  on  the  ballots  the  two  propositions  in  the 
order  here  set  forth : 

"For  the  recall  of   (name  of  person)." 
"Against  the  recall  of  (name  of  person)." 


OF   GOVERNMENT  47 

Immediately  to  the  left  of  each  of  the  propositions  shall  be 
placed  a  square  in  which  the  electors,  by  making  a  cross  mark 
(X),  may  vote  for  either  of  such  propositions. 

Sec.  69.  Filling  of  Vacancies.  In  any  such  election,  if  a  ma- 
jority of  the  votes  cast  on  the  question  of  removal  of  any  com- 
missioner are  affirmative,  the  person  whose  removal  is  sought 
shall  thereupon  be  deemed  removed  from  office  upon  the  an- 
nouncement of  the  official  canvass  of  that  election,  and  the 
vacancy  caused  by  such  recall  shall  be  filled  by  the  remainder 
of  the  city  commission  according  to  the  provisions  of  section 
four  of  this  charter. 

If,  however,  an  election  is  held  for  the  recall  of  more  than 
two  commissioners,  candidates  to  succeed  them  for  their  unex- 
pired terms  shall  be  voted  upon  at  the  same  election,  and  shall 
be  nominated  without  primary  election,  by  petitions  signed,  dated 
and  verified  in  the  manner  required  for  petitions  presenting 
names  of  candidates  for  nomination  at  a  primary  election,  and 
similar  in  form  to  such  petitions,  but  signed  by  electors  equal  in 
number  to  at  least  five  per  cent  of  the  registered  voters  of  the 
city,  and  filed  with  the  election  authorities  at  least  thirty  days 
prior  to  such  recall  election.  But  no  such  nominating  petition 
shall  be  signed  or  circulated  until  after  the  time  has  expired  for 
signing  the  copies  of  the  petition  for  the  recall,  and  any  signa- 
tures thereon  antedating  such  time  shall  not  be  counted. 

Sec.  70.  Counting  the  Vote.  Candidates  shall  not  be  nom- 
inated to  succeed  any  particular  commissioner;  but  if  only  one 
commissioner  is  removed  at  such  election,  the  candidate  at  such 
election  receiving  the  highest  number  of  votes  shall  be  declared 
elected  to  fill  the  vacancy;  and  if  more  than  one  commissioner  is 
removed  at  such  election,  such  candidates  equal  in  number  to  the 
number  of  commissioners  removed  shall  be  declared  elected  to 
fill  the  vacancies ;  and  among  the  successful  candidates,  those 
receiving  the  greater  number  of  votes  shall  be  declared  elected 
for  the  longer  terms.  Cases  of  ties,  and  all  other  matters  not 
herein  specially  provided  for,  shall  be  determined  by  the  rules 
governing  elections  generally. 

Sec.  71.  Effect  of  Resignations.  No  proceedings  for  the  re- 
call of  all  the  members  of  the  city  commission  at  the  same  elec- 
tion shall  be  defeated  in  whole  or  in  part  by  the  resignation  of 
any  or  all  of  them,  but  upon  the  resignation  of  any  of  them  the 
city  commission  shall  have  power  to  fill  the  vacancy  until  a  sue- 


48  CITY   MANAGER   PLAN 

cessor  is  elected,  and  the  proceedings  for  the  recall  and  the 
election  of  successors  shall  continue  and  have  the  same  effect  as 
though  there  had  been  no  resignation. 

Sec.  ^2.  Miscellaneous  Provisions.  Except  as  herein  other- 
wise provided,  no  petition  to  recall  any  commissioner  shall  be 
filed  within  six  months  after  he  takes  office.  No  person  removed 
by  recall  shall  be  eligible  to  be  elected  or  appointed  upon  or  for 
a  period  of  two  years  after  the  date  of  such  recall.  The  city 
auditor  shall  preserve  in  his  office  all  papers  comprising  or  con- 
nected with  a  petition  for  a  recall  for  the  period  of  one  year 
after  the  same  were  filed.  The  method  of  removal  herein  pro- 
vided is  in  addition  to  such  other  methods  as  are,  or  may  be, 
provided  by  general  law. 

Sec.  73.  Offenses  Relating  to  Petitions.  No  person  shall 
falsely  impersonate  another,  or  purposely  write  his  name  or  resi- 
dence falsely,  in  the  signing  of  any  petition  for  initiative,  refer- 
endum or  recall,  or  forge  any  name  thereto,  or  sign  any  such 
paper  with  knowledge  that  he  is  not  a  qualified  elector  of  the 
city.  No  person  shall  sign,  or  knowingly  permit  to  be  signed,  any 
petition  for  recall  at  any  place  other  than  one  of  the  places  here- 
inbefore designated  for  the  signing  of  such  petitions.  Nor  shall 
any  person  employ  or  pay  another,  or  accept  employment  or  pay- 
ment, for  circulating  any  initiative  or  referendum  petition  upon 
the  basis  of  the  number  of  signatures  procured  thereto.  Any 
person  violating  any  of  the  provisions  of  this  section  shall  be 
deemed  guilty  of  a  misdemeanor  and  shall,  upon  conviction, 
be  fined  in  any  sum  not  to  exceed  one  hundred  dollars  and  the 
costs  of  prosecution.  The  foregoing  provisions  shall  not  be  held 
to  be  exclusive  of,  but  in  addition  to,  all  laws  of  the  state  pre- 
scribing penalties  for  the  same  offenses  or  for  other  offenses 
relating  to  the  same  matter. 

Franchises 

Sec.  74.  Grants  Limited.  No  grant,  or  renewal  thereof,  to 
construct  and  operate  a  public  utility  in  the  streets  and  public 
grounds  of  the  city  shall  be  made  by  the  city  commission  to  any 
individual,  company  or  corporation  in  violation  of  any  of  the 
limitations  contained  in  this  charter. 

Sec.  75.  Period  of  Grants.  No  such  grant  shall  be  exclu- 
sive, nor  shall  it  be  made  for  a  longer  period  than  twenty  years. 
No  such  grant  shall  be  renewed  earlier  than  two  years  prior  to 
its  expiration  unless  the  city  commission  shall  by  a  vote  of  at 


OF    GOVERNMENT  49 

least  four  of  its  members  first  declare  by  ordinance  its  intention 
of  considering  a  renewal  thereof.  All  grants  of  the  right  to 
make  extensions  of  any  public  utility  shall  be  subject  as  far  as 
practicable  to  the  terms  of  the  original  grant  and  shall  expire 
therewith. 

Sec.  76.  Assignment.  No  such  grant  shall  be  leased,  as- 
signed or  otherwise  alienated  except  with  the  express  consent 
of  the  city  commission. 

Sec.  77.  Right  of  Purchase.  All  such  grants  shall  reserve 
to  the  city  the  right  to  purchase  or  lease  all  the  property  of  the 
utility  used  in  or  useful  for  the  operation  of  the  utility,  at  a 
price  either  fixed  in  the  ordinance  making  the  grant,  or  to  be 
fixed  in  the  manner  provided  by  such  ordinance,  which  price 
shall  in  no  event  include  any  value  for  the  grant.  Nothing  in  such 
ordinance  shall  prevent  the  city  from  acquiring  such  property 
by  condemnation  proceedings  or  in  any  other  lawful  mode,  which 
rights  shall  be  in  addition  to  those  reserved  in  such  ordinance. 
Upon  the  acquisition  of  such  property  by  purchase,  condemna- 
tion or  otherwise  all  grants  shall  at  once  terminate. 

Sec.  78.  Extension  by  Annexation.  It  shall  be  provided  in 
every  such  grant  that  upon  the  annexation  of  any  territory  to  the 
city  the  portion  of  any  such  utility  that  may  be  located  within 
such  annexed  territory  and  upon  the  streets,  alleys  or  public 
grounds  thereof,  shall  thereafter  be  subject  to  all  the  terms  of 
the  grant  as  though  it  were  an  extension  made  thereunder. 

Sec.  79.  Right  of  Regulation.  All  grants  shall  be  subject  to 
the  right  of  the  city,  whether  in  terms  reserved  or  not,  to  control 
at  all  times  the  distribution  of  space  in,  over,  under  or  across 
all  streets,  alleys  or  public  grounds  occupied  by  public  utility 
fixtures,  and,  when  in  the  opinion  of  the  city  commission  the 
public  interest  so  requires,  such  fixtures  may  be  caused  to  be  re- 
constructed, relocated,  altered  or  discontinued ;  and  said  city 
shall  at  all  times  have  the  power  to  pass  all  regulatory  ordi- 
nances affecting  such  utilities  which  in  the  opinion  of  the  city 
commission  are  required  in  the  interest  of  the  public  health, 
safety,  or  accommodation. 

Sec.  80.  Forfeitures.  If  any  action  shall  be  instituted  or 
prosecuted  directly  or  indirectly  by  the  grantee  of  any  such  grant, 
or  by  its  stockholders  or  creditors,  to  set  aside  or  have  declared 
void  any  of  the  terms  of  any  such  grant,  the  whole  of  such  grant 
may  be  thereupon  forfeited  and  annulled  at  the  option  of  the 


50  CITY   MANAGER   PLAN 

city  commission  to  be  expressed  by  ordinance.  All  such  grants 
shall  make  provision  for  the  declaration  of  a  forfeiture  by  the 
city  commission  for  the  violation  by  the  grantee  of  any  of  the 
terms  thereof. 

Sec.  8i.  Accotmts  and  Reports.  Every  person  or  corporation 
operating  a  public  utility  within  the  city  Hmits,  whether  under  a 
grant  heretofore  or  hereafter  obtained,  shall  keep  and  main- 
tain at  some  place  within  the  city  suitable,  and  complete  books 
of  account,  showing  in  detail  the  assets,  financial  obligations, 
gross  revenue,  net  profits  and  all  the  operations  of  such  utility 
which  are  usually  shown  by  a  complete  system  of  bookkeeping. 

Each  such  person  or  corporation,  within  sixty  days  after  the 
end  of  each  of  its  fiscal  years,  unless  the  city  commission  shall 
extend  the  time,  shall  file  with  the  city  commission  a  report  for 
the  preceding  fiscal  year  showing  the  gross  revenue,  the  net 
profits,  expenses  of  repairs,  betterments  and  additions,  the 
amount  paid  for  salaries,  amount  paid  for  interest  and  discount, 
other  expenses  of  operation,  and  such  other  information,  if  any, 
as  the  city  commission  from  time  to  time  may  prescribe.  If  the 
city  commission  shall  prescribe  the  form  for  such  reports,  then 
such  reports  shall  be  made  in  the  form  from  time  to  time  pre- 
scribed by  such  commission. 

It  shall  be  the  duty  of  each  such  person  or  corporation  to 
furnish  the  city  commission  such  supplementary  or  special  infor- 
mation about  its  affairs  as  the  commission  may  demand;  and  the 
commission,  or  its  authorized  representative,  shall  at  any  and 
all  reasonable  times  have  access  to  all  the  books,  records  and 
papers  of  each  and  every  such  person  or  corporation,  with  privi- 
lege of  taking  copies  of  same  or  any  part  thereof. 

The  duties  herein  prescribed  may  be  specifically  enforced  by 
appropriate  legal  proceedings ;  and  in  addition,  each  such  person 
or  corporation,  for  failure  to  comply  with  the  provisions  of  this 
section,  shall  be  liable  to  the  city  of  Springfield,  Ohio,  in  the 
sum  of  twenty-five  dollars  per  day  for  each  day  of  such  failure, 
to  be  recovered  in  a  civil  action  in  the  name  of  the  city. 

The  provisions  of  this  section  do  not  apply  to  any  utility 
extending  in  its  operations  to  other  communities  not  properly 
suburban  to  the  city  of  Springfield,  Ohio ;  but  the  city  commission 
by  ordinance  may  make  the  same,  or  any  part  thereof,  applicable 
to  the  portion  of  any  such  utility  operated  within  the  limits  of 
the  city. 


OF   GOVERNMENT  51 

Sec.  82.  Grants  Not  Included.  Revocable  permits  for  laying 
spur  tracks  across  or  along  streets,  alleys  or  public  grounds,  to 
connect  a  steam  or  electric  railroad  with  any  property  in  need 
of  switching  facilities  shall  not  be  regarded  as  a  grant  within 
the  meaning  of  this  charter,  but  may  be  permitted  in  acordance 
with  such  terms  and  conditions  as  the  city  commission  may  by 
ordinance  prescribe. 

Sec.  83.  General  Provision.  Nothing  in  this  charter  con- 
tained shall  operate  in  any  way,  except  as  herein  specifically 
stated,  to  limit  the  city  commission  in  the  exercise  of  any  of  its 
lawful  powers  respecting  public  utilities,  or  to  prohibit  the  city 
commission  from  imposing  in  any  such  grant  such  further  re- 
strictions and  provisions  as  it  may  deem  to  be  in  the  public  in- 
terest, provided  only  that  the  same  are  not  inconsistent  with  the 
provisions  of  this  charter  or  the  constitution  of  the  state. 

Miscellaneous  Provisions 

Sec.  84.  General  Laws  to  Apply.  All  general  laws  of  the 
state  applicable  to  municipal  corporations,  now  or  hereafter  en- 
acted, and  which  are  not  in  conflict  with  the  provisions  of  this 
charter,  or  with  ordinances  or  resolutions  hereafter  enacted  by 
the  city  commission,  shall  be  applicable  to  this  city;  provided, 
however,  that  nothing  contained  in  this  charter  shall  be  con- 
strued as  limiting  the  power  of  the  city  commission  to  enact  any 
ordinance  or  resolution  not  in  conflict  with  the  constitution  of  the 
state  or  with  the  express  provisions  of  this  charter. 

Sec.  85.  Ordinances  Continued  in  Force.  All  ordinances  and 
resolutions  in  force  at  the  time  of  the  taking  effect  of  this  char- 
ter, not  inconsistent  with  its  provisons,  shall  continue  in  full 
force  and  effect  until  amended  or  repealed. 

Sec.  86.  Ordinances  Continued  in  Force.  All  ordinances  and 
the  members  of  the  Board  of  Education  and  the  Police  Judge, 
holding  office  at  the  time  this  charter  is  adopted  shall  continue 
in  office  and  in  the  performance  of  their  duties  until  provision 
shall  have  been  otherwise  made  in  accordance  with  this  charter 
for  the  performance  or  discontinuance  of  the  duties  of  any  such 
office.  When  such  provision  shall  have  been  made  the  term  of 
any  such  officer  shall  expire  and  the  office  be  deemed  abolished. 
The  powers  which  are  conferred  and  the  duties  which  are  im- 
posed upon  any  officer,  board  or  department  of  the  city  under  the 
laws  of  the  state,  or  under  any  city  ordinance  or  contract  in 


52  CITY    MAKAGER    PLAN 

force  at  the  time  of  the  taking  effect  of  this  act  shall,  if  such 
office  or  department  is  abolished  by  this  charter,  be  thereafter 
exercised  and  discharged  by  the  commission,  officer,  board  or 
department  upon  whom  are  imposed  corresponding  functions, 
powers  and  duties  by  this  charter  or  by  any  ordinance  or  resolu- 
tion of  the  city  hereafter  enacted. 

Sec.  87.  Continuance  of  Contracts  and  Vested  Rights.  All 
vested  rights  of  the  city  shall  continue  to  be  vested  and  shall  not 
in  any  manner  be  affected  by  the  adoption  of  this  charter;  nor 
shall  any  right  or  liability,  or  pending  suit  or  prosecution,  either 
in  behalf  of  or  against  the  city,  be  in  any  manner  affected  by 
the  adoption  of  this  charter,  unless  otherwise  herein  expressly 
provided  to  the  contrary.  All  contracts  entered  into  by  the  city 
or  for  its  benefit  prior  to  the  taking  effect  of  this  charter  shall 
continue  in  full  force  and  effect.  All  public  work  begun  prior  to 
the  taking  effect  of  this  charter  shall  be  continued  and  perfected 
hereunder.  Public  improvements  for  which  legislative  steps  shall 
have  been  taken  under  laws  in  force  at  the  time  this  charter  takes 
effect  may  be  carried  to  completion  in  accordance  with  the  pro- 
visions of  such  laws. 

Sec.  88.  Investigations.  The  city  commission,  or  any  com- 
mittee thereof,  the  city  manager  and  any  advisory  board  ap- 
pointed by  the  commission  for  such  purpose,  shall  have  power  at 
any  time  to  cause  the  affairs  of  any  department  or  the  conduct 
of  any  officer  or  employee  to  be  investigated;  and  for  such  pur- 
pose shall  have  power  to  compel  the  attendance  of  witnesses  and 
the  production  of  books,  papers  and  other  evidence;  and  for  that 
purpose  may  issue  subpoenas  or  attachments  which  shall  be 
signed  by  the  president  or  chairman  of  the  body  or  by  the  officer 
making  the  investigation,  and  shall  be  served  by  any  officer  au- 
thorized by  law  to  serve  such  process.  The  authority  making 
such  investigation  shall  also  have  power  to  cause  the  testimony 
to  be  given  under  oath  to  be  administered  by  some  officer  author- 
ized by  general  law  to  administer  oaths;  and  shall  also  have 
power  to  punish  as  for  contempt  any  person  refusing  to  testify 
to  any  fact  within  his  knowledge,  or  to  produce  any  books,  or 
papers  under  his  control,  relating  to  the  matter  under  investiga- 
tion. 

Sec.  89.  Oath  of  Office.  All  officers  before  taking  office  shall 
take  the  oath  of  office  prescribed  by  law ;  but  the  oath  of  office 
of  city  commissioner  shall  be  in  writing  and  be  filed  with  the 


OF   GOVERNMENT  53 

city  auditor  and  shall  contain  the  assertion  that  in  his  candidacy 
for  nomination  and  election  he  has  not  violated  any  provision  of 
section  three  of  this  charter. 

Sec.  90.  Hours  of  Labor.  Except  in  cases  of  extraordinary 
emergency,  not  to  exceed  eight  hours  shall  constitute  a  day's 
work  and  not  to  exceed  forty-eight  hours  a  week's  work,  for 
workmen  engaged  on  any  public  work  carried  on  or  aided  by  the 
city,  whether  done  by  contract  or  otherwise;  and  it  shall  be  un- 
lawful for  any  person,  corporation  or  association,  whose  duty  it 
shall  be  to  employ  or  to  direct  and  control  the  services  of  such 
workmen  to  require  or  permit  any  of  them  to  labor  more  than 
eight  hours  in  any  calendar  day  or  more  than  forty-eight  hours 
in  any  week,  except  in  cases  of  extraordinary  emergency.  Any 
person  who  shall  violate  any  of  the  provisions  of  this  section 
shall  be  deemed  guilty  of  a  misdemeanor  and  upon  conviction 
be  fined  not  to  exceed  five  hundred  dollars  or  be  imprisoned  not 
more  than  six  months  or  both.  This  section  shall  not  be  con- 
strued to  include  policemen  or  firemen  nor  shall  it  be  held  to 
apply  to  any  contract  made  prior  to  the  taking  effect  of  this 
charter. 

Sec.  91.  First  Election.  In  order  that  the  provisions  of  this 
charter  may  be  put  into  full  force  and  effect  from  and  after 
January  I,  1914,  five  city  commissioners  shall  be  elected  on  the 
fourth  day  of  November,  1913.  Candidates  for  the  city  com- 
mission shall,  at  such  election,  be  nominated  by  petition,  and 
there  shall  be  no  primary.  Such  petitions  shall  contain  the  name 
of  the  candidate  or  candidates,  and  shall  specify  as  to  each  can- 
didate that  he  is  nominated  for  the  office  of  City  Commissioner 
for  the  City  of  Springfield,  Ohio,  and  shall  state  his  place  of 
residence,  with  street  and  number  thereon,  if  any.  Such  peti- 
tions shall  be  signed  for  each  candidate  by  qualified  electors 
of  the  city  not  less  in  number  than  five  per  cent  of  the  total 
registered  voters  of  the  city. 

Signers  of  such  petitions  shall  insert  in  them  the  names  and 
addresses  of  such  persons  as  they  desire  to  the  number  of  five 
as  a  committee  who  may  fill  vacancies  caused  by  death  or  with- 
drawal. 

Such  petitions  shall  contain  a  provision  that  each  signer 
thereto  thereby  pledges  himself  to  support  and  vote  for  the  can- 
didate or  candidates  whose  nominations  are  therein   requested, 


54  CITY   MANAGER   PLAN 

and  each  elector  signing  a  petition  shall  add  to  his  signature  his 
place  of  residence  and  may  subscribe  to  one  nomination  for  each 
of  the  five  places  to  be  filled  and  no  more. 

One  of  the  signers  to  each  such  separate  paper  shall  swear 
that  the  statements  therein  are  true  to  the  best  of  his  knowledge 
and  belief  and  the  certificate  of  such  oath  shall  be  annexed. 

Such  petitions  shall  be  filed  with  the  Board  of  Deputy  State 
Supervisors  of  Elections  of  Clark  County,  Ohio,  not  less  than 
sixty  days  previous  to  the  day  of  said  election. 

Any  person  whose  name  has  been  submitted  for  candidacy 
by  any  such  petition  shall  file  with  the  secretary  or  any  member 
of  such  election  board,  before  September  15,  1913,  his  written  ac- 
ceptance of  such  candidacy,  which  acceptance  shall  state  that  if 
elected  he  will  qualify  for  and  serve  in  such  office  during  the 
term  for  which  he  is  elected.  It  shall  be  the  duty  of  the  secre- 
tory or  member  of  such  election  board  with  whom  such  accept- 
ance is  filed  forthwith  to  make  and  deliver  to  such  candidate  a 
written  certificate  acknowledging  the  receipt  of  such  acceptance 
and  stating  the  date  of  its  filing.  If  any  candidate  fails  to  file 
such  acceptance  his  name  shall  not  appear  upon  the  ballot. 

In  the  event  of  failure  to  elect  commissioners  at  such  elec- 
tion, the  vacancies  due  thereto  shall  be  filled  under  the  provisions 
of  section  four  of  this  charter  at  any  time  after  November  15th, 
1913;  and  the  three  members  selected  by  the  joint  board  shall 
have  the  four-year  terms. 

Sec.  92.  Amendment  of  Charter.  Amendments  to  this  char- 
ter may  be  submitted  to  the  electors  of  the  city  by  a  two-thirds 
vote  of  the  city  commission,  and,  upon  petition  signed  by  ten  per 
cent  of  the  electors  of  the  city  setting  forth  any  such  proposed 
amendment,  shall  be  submitted  by  such  city  commission.  The 
ordinance  providing  for  the  submission  of  any  such  amendment 
shall  require  that  it  be  submitted  to  the  electors  at  the  next 
regular  municipal  election  if  one  shall  occur  not  less  than  sixty 
nor  more  than  one  hundred  and  twenty  days  after  its  pas- 
sage ;  otherwise  it  shall  provide  for  the  submission  of  the  amend- 
ment at  a  special  election  to  be  called  and  held  within  the  time 
aforesaid.  Not  less  than  thirty  days  prior  to  such  election  the 
clerk  of  the  city  commission  shall  mail  a  copy  of  the  proposed 
amendment  to  each  elector  whose  name  appears  upon  the  poll 
or  registration  books  of  the  last  regular  municipal  dr  general 
election.    If  such  proposed  amendment  is  approved  by  a  majority 


OF   GOVERNMENT  55 

of  the  electors  voting  thereon  it  shall  become  a  part  of  the  char- 
ier at  the  time  fixed  therein. 

Sec.  93.  Saving  Clause.  If  anj-  section  or  part  of  a  section 
of  this  charter  proves  to  be  invalid  or  unconstitutional,  the  same 
shall  not  be  held  to  invalidate  or  impair  the  validity,  force  or 
effect  of  any  other  section  or  part  of  a  section  of  this  charter, 
unless  it  clearly  appear  that  such  other  section  or  part  of  a 
section  is  wholly  or  necessarily  dependent  for  its  operation  upon 
the  section  or  part  of  a  section  so  held  unconstitutional  or  in- 
valid. 

Sec.  94.  When  Charter  Takes  Effect.  For  the  purpose  of 
nominating  and  electing  officers  and  all  purposes  connected  there- 
with and  for  the  purpose  of  exercising  the  powers  of  the  city  as 
provided  herein,  this  charter  shall  take  effect  from  the  time  of 
its  approval  by  the  electors  of  the  city.  For  the  purpose  of 
establishing  departments,  divisions  and  officers,  and  distributing 
the  functions  thereof,  and  for  all  other  purposes  it  shall  take 
effect  on  the  first  day  of  January,  1914. 


DIGEST  OF  THE  CHARTER  OF  DAYTON,  OHIO' 

Governing  Body 

Title:    Commission. 

Number:    Five. 

Term:    Four  years.     Partial  renewal  biennially. 

Removal:    Recall. 

Salary:    Twelve  hundred   dollars    (Mayor,   $1,800). 

Mayor 

Sec.  36.  The  mayor  shall  be  that  member  of  the  commission 
who,  at  the  regular  municipal  election  at  which  the  three  com- 
missioners were  elected,  received  the  highest  number  of  votes, 
except  that  at  the  first  regular  municipal  election  held  under  this 
charter  the  mayor  shall  be  the  commissioner  receiving  the  highest 
number  of  votes.  In  case  two  candidates  receive  the  same  num- 
ber of  votes,  one  of  them  shall  be  chosen  mayor  by  the  remain- 
ing members  of  the  commission.     In  event  of  a  vacancy  in  the 

1  Where  the  City  Manager  Plan  has  had  its  greatest  development. 
Adopted  August  12,  19 13.  Reprinted  from  Beard's  "Digest  of  Short  Ballot 
Charters." 


S6  CITY   MANAGER   PLAN 

office  of  mayor,  the  remaining  members  of  the  commission  shall 
choose  his  successor  for  the  unexpired  term  from  their  own 
number.  The  mayor  shall  be  the  presiding  officer,  except  that 
in  his  absence  a  president  protempore  may  be  chosen.  The  mayor 
shall  exercise  such  powers  conferred  and  perform  all  duties 
imposed  upon  him  by  this  charter,  the  ordinances  of  the  city 
and  the  laws  of  the  state.  He  shall  be  recognized  as  the  official 
head  of  the  city  by  the  courts  for  the  purpose  of  serving  civil 
processes,  by  the  Governor  for  the  purposes  of  the  military  law, 
and  for  all  ceremonial  purposes. 

Sec.  2>1-  In  the  event  the  commissioner  who  is  acting  as 
mayor  shall  be  recalled,  the  remaining  members  of  the  commis- 
sion shall  select  one  of  their  number  to  serve  as  mayor  for  the 
unexpired  term.  In  the  event  of  the  recall  of  all  of  the  com- 
missioners, the  person  receiving  the  highest  number  of  votes  at 
the  election  held  to  determine  their  successors  shall  serve  as  the 
mayor. 

City  Manager 

Sec.  47.  The  commission  shall  appoint  a  city  manager  who 
shall  be  the  adminstrative  head  of  the  municipal  government  and 
shall  be  responsible  for  the  efficient  administration  of  all  depart- 
ments. He  shall  be  appointed  without  regard  to  his  political 
beliefs  and  may  or  may  not  be  a  resident  of  the  city  of  Dayton 
when  appointed.  He  shall  hold  office  at  the  will  of  the  commis- 
sion and  shall  be  subject  to  recall  as  herein  provided. 

Sec.  48.  Powers  and  Duties  of  the  City  Manager.  The 
powers  and  duties  of  the  city  manager  shall  be 

(a)  To  see  that  the  laws  and  ordinances  are  enforced. 

(b)  To  appoint  and,  except  as  herein  provided,  remove  all 
directors  of  departments  and  all  subordinate  officers  and  em- 
ployees in  the  departments  in  both  the  classified  and  unclassified 
service;  all  appointments  to  be  upon  merit  and  fitness  alone, 
and  in  the  classified  service  all  appointments  and  removals  to  be 
subject  to  the  civil  service  provisions  of  this  charter; 

(c)  To  exercise  control  over  all  departments  and  divisions 
created  herein  or  that  may  be  hereafter  created  by  the  commis- 
sion; 

(d)  To  attend  all  meetings  of  the  commission,  with  the  right 
to  take  part  in  the  discussion  but  having  no  vote; 

(e)  To  recommend  to  the  commission  for  adoption  such 
measures  as  he  may  deem  necessary  or  expedient; 


OF   GOVERNMENT  57 

(/)  To  keep  the  commission  fully  advised  as  to  the  finan- 
cial condition  and  needs  of  the  cit}-;  and 

{g)  To  perform  such  other  duties  as  may  be  prescribed  by 
this  charter  or  be  required  of  him  by  ordinance  or  resolution  of 
the  commission. 

Sec.  49.  Salary.  The  city  manager  shall  receive  such  salary 
as  may  be  fixed  by  ordinance  of  the  commission. 

Sec.  50.  Investigations  by  the  City  Manager.  The  city 
manager  may  without  notice  cause  the  affairs  of  any  department 
or  the  conduct  of  any  officer  or  employee  to  be  examined.  Any 
person  or  persons  appointed  by  the  city  manager  to  examine  the 
affairs  of  any  department  or  the  conduct  of  any  officer  or  em- 
ployee shall  have  the  same  power  to  compel  the  attendance  of 
witnesses  and  the  production  of  books  and  papers  and  other  evi- 
dence, and  to  cause  witnesses  to  be  punished  for  contempt,  as  is 
conferred  upon  the  commission  by  this  charter. 

Appointments 

Enumeration:  (i)  City  Manager,  Civil  Service  Board,  Clerk 
of  the  Commission.  (2)  City  Attorney,  Director  of  Public  Ser- 
vice, Director  of  Public  Welfare,  Director  of  Public  Safety, 
Director  of  Finance.  (3)  The  following  subordinate  officers: 
Health  Officer,  Chief  of  Police,  Fire  Chief,  City  Accountant,  City 
Treasurer,  City  Purchasing  Agent. 

Manner:  Group  (i)  by  the  Commission.  Groups  (2)  and 
(3)  by  the  City  Alanager. 

Civil  Service  Provisions:  The  following  officers  are  in  the 
unclassified  service :  Those  elected  by  the  people,  the  City  Hvlan- 
ager,  the  heads  of  departments  and  divisions  of  departments, 
members  of  appointive  boards,  the  Clerk  of  the  Commission, 
and  the  deputies  and  secretaries  of  the  City  Manager,  and  one 
assistant  or  deputy  and  one  secretary  for  each  department. 

All  other  positions  are  in  the  classified  service  in  the  com- 
petitive, non-competitive  or  labor  divisions,  and  are  under  the 
regulations  of  the  Civil  Service  Board. 

Election  Provisions 

Non-partisan  nominations  and  elections.  Names  are  placed  on 
the  ballot  at  the  primary  election  by  petition  of  two  per  centum 
of  the  registered  voters. 

Candidates  to  twice  the  number  of  offices  to  be  filled,   re- 


58  CITY   MANAGER   PLAN 

ceiving  the  highest  number  of  votes  at  the  primary  are  the  can- 
didates at  the  second  election. 

Initiative 
Ten  per  centum  petition*  to  bring  the  ordinance  to  the  at- 
tention of  the   council;   additional  fifteen*  per  centum  petition 
after  thirty  days  to  have  it  submitted  to  the  people  (special  elec- 
tion). 

Referendimt 
Twenty-five  per  centum  petition*    (special  election). 

Recall 
Twenty-five  per  centum  petition.* 

No  recall  petition  may  be  filed  within  the  first  six  months  of 
office.     The  question  of  removal  is  separated  from  that  of  the 
choice  of  a  successor,  and  the  name  of  the  officer  sought  to  be 
recalled  does  not  appear  as  a  candidate  to  succeed  himself. 
The  recall  may  be  applied  to  the  City  Manager. 

COMMENT  ON  THE  DAYTON  CHARTER' 

Dayton  is  the  first  large  city  to  attempt  municipal  betterment 
through  city  manager  government,  and  this  fact,  together  with 
the  unusual  circumstances  attending  its  adoption,  has  directed  a 
significant  interest  to  the  experiment.  Many  communities  im- 
pressed by  this  example  of  local  government  have  endeavored  to 
put  its  larger  principles  into  operation.  Some  of  these  have 
copied  intact  the  Dayton  charter,  while  others  have  accepted  the 
administrative  provisions  with  slight  change. 

Doubtless  a  charter  most  carefully  prepared  would,  under  op- 
eration, develop  points  for  improvement.  This  could  not  be  less 
true  of  the  Dayton  document,  which  in  spite  of  painstaking 
thought  on  certain  sections,  was  written  in  a  limited  time  by 
business  men.  The  wide  use  of  the  Dayton  document  as  a  model 
suggests  the  indicating  of  certain  alterations,  the  need  of  which 
has  developed  through  a  year's  experience.  The  notations  are  il- 
lustrative of  the  necessity  of  care  and  experience  in  charter 
drafting,  and  are  not  meant  as  an  exhaustive  recital  of  charter 
defects. 

*  Registered  vote. 

*  By  Lent  D.  Upson.  In  National  Municipal  Review.  4:  266-72.  April, 
«9iS. 


OF  GOVERNMENT  59 

It  so  happens  that  all  of  the  larger  cities  and  most  of  the 
smaller  ones  with  city  manager  government  have  placed  the  leg- 
islative powers  in  a  small  board,  elected  at  large  without  regard 
to  political  party.  Irrespective  of  the  improvement  in  administra- 
tion generally  attending  the  adoption  of  the  city  manager  plan,  it 
has  not  been  definitely  proven  that  a  small  council  chosen  in  the 
manner  indicated  contributes  materially  to  this  result. 

Indeed,  the  amount  of  newspaper  criticism  and  street  talk 
based  upon  misinformation  and  prejudice  prompts  the  belief  that 
there  is  a  failure  to  filter  the  facts  of  government  down  to  an  in- 
terested public — an  error  which  some  elements  suggest  might  be 
corrected  by  bringing  the  legislative  body  closer  to  the  people. 
It  is  advanced  that  a  method  by  which  the  several  political  and 
social  elements  in  the  community  might  be  represented  would 
stimulate  a  more  friendly  attitude  among  discordant  groups,  and 
would  require  such  representatives  to  place  themselves  definitely 
on  record  on  propositions  which  are  criticised  solely  for  political 
expediency.  In  other  words,  responsibility  would  minimize  fault- 
finding. This  problem  of  representation  can  have  only  an  em- 
pirical solution,  and  Dayton  having  discarded  the  ward  system 
and  its  evils,  awaits  with  interest  the  results  of  a  trial  of  propor- 
tional representation. 

That  the  provision  in  the  Dayton  charter  permitting  the  recall 
of  the  city  manager  is  an  error,  has  been  generally  conceded. 
The  city  manager  is  solely  an  administrative  officer  engaged  to 
carry  out  the  legislative  policies  of  the  commission.  If  he  fails 
in  these  administrative  duties,  the  commission  has  made  the  mis- 
take of  appointing  an  incompetent  person;  if  measures  are  un- 
popular, it  is  the  fault  of  the  commission  which  ordered  them 
put  into  effect.  Granted  that  in  the  public  mind  the  city  manager 
will  always  be  the  most  important  person  in  the  city  government ; 
that  administrations  will  succeed  or  fail  upon  the  manager's 
achievements — yet  in  the  last  analysis  it  is  the  employers  who 
should  be  held  responsible. 

The  charter-framers  of  Dayton  were  not  insensible  to  these 
principles,  but  believed  that  to  have  so  radical  a  departure  in  city 
government  approved,  it  would  be  necessary  to  offer  an  addi- 
tional safeguard  in  the  possibility  of  recalling  the  city  manager. 
As  the  public  has  come  largely  to  realize  the  purely  administra- 
tive duties  of  the  city  manager,  it  seems  feasible  to  eliminate  this 
objectionable  feature  of  the  charter. 


6o  CITY   MANAGER   PLAN 

The  charter  provides  that  the  first  meeting  of  the  city  commis- 
sion shall  be  "on  the  first  Monday  of  January  following  the  reg- 
ular municipal  election."  Under  such  circumstances  it  might  so 
happen  that  the  city  would  be  without  government,  or  at  least  its 
officers  without  authority  to  expend  funds  from  January  i  until 
the  first  Monday  in  the  month.  This  section  should  be  remedied, 
calling  for  a  meeting  of  the  commission,  and  the  passing  of  an 
appropriation  ordinance  on  the  first  business  day  of  the  year. 

It  has  been  provided  that  the  city  attorney  shall  be  appointed 
by  the  city  manager,  while  his  assistants  are  chosen  subject  to 
civil  service  regulations.  Question  has  been  made  as  to  the  policy 
of  subordinating  this  office  to  chief  executive.  Numerous  ques- 
tions may  be  proposed,  relating  particularly  to  the  financial  ad- 
ministration of  the  city,  in  which  it  might  be  advisable  that  the 
opinion  of  the  city  attorney  be  unbiased  by  his  relationship  with 
the  officer  directly  responsible  for  such  financial  considerations. 
Not  infrequently  the  desire  of  an  administration  to  show  imme- 
diate results  proves  inimical  to  the  best  interests  of  the  tax  pay- 
ers, although  the  latter  are  theoretically  protected  by  law.  For 
example,  by  the  refunding  of  bonds  to  the  advantage  of  the  op- 
erating fund;  by  bond  issues  for  purposes  approaching  current 
operation,  etc.  In  such  instances  the  legal  adviser  of  the  city 
should  be  in  the  position  to  advance  an  independent  opinion.  It 
has  been  suggested  that  the  city  attorney,  or  the  chief  financial 
officer,  preferably  the  former,  be  appointed  directly  b}'  the  com- 
mission, but  this  diversion  from  centralized  authority  has  never 
been  tried. 

The  vital  feature  of  the  prescribed  accounting  procedure  of 
Dayton  is  in  the  words  "accounting  procedure  shall  be  devised 
and  maintained  for  the  city,  adequate  to  record  in  detail  all  trans- 
actions affecting  the  acquisition,  custodianship  and  disposition  of 
values  ..."  With  this  sanction,  the  director  of  finance  has 
opened  a  complete  set  of  books  including  a  general  ledger,  and  is 
prepared  to  furnish  an  accurate  balance  sheet  of  all  city  funds. 
In  fact,  Dayton  has  installed  a  financial  system  comparing  favor- 
ably with  that  employed  in  large  private  business,  and  which  is 
equalled  by  few  cities  in  the  country.  The  charter  further  re- 
quires that  distinct  summaries  and  schedules  shall  be  presented 
for  each  public  utility  owned  and  operated.  This  should  be 
amended  to  include  public  industries,  such  as  garbage  disposal 
plants,  public  markets,  etc. 


OF    GOVERNMENT  6i 

Under  the  present  requirement  the  city  manager  signs  both 
the  order  for  goods  or  services  and  the  voucher  by  which  the 
payment  for  such  is  authorized.  It  is  doubtful  if  the  manager 
should  be  compelled  to  sign  either  of  these  documents,  as  he  has 
no  personal  knowledge  of,  and  little  time  to  investigate,  the 
merits  of  the  thousands  of  business  transactions  occurring. 

To  centralize  the  city  government  the  charter  provides  that 
the  board  of  sinking  fund  trustees  shall  consist  of  the  city  com- 
mission, the  city  manager,  and  the  director  of  finance.  A  com- 
mission with  its  many  varied  duties  has  little  time  or  interest  in 
technical  sinking  fund  procedure.  Even  in  Dayton  such  a  fund- 
amental procedure  as  the  change  from  the  serial  to  sinking  fund 
plan  of  debt  retirement  secured  scant  consideration.  Further,  in- 
trusting the  custodianship  of  sinking  fund  money  with  the  same 
body  that  creates  indebtedness  may  not  be  assumed  always  to  op- 
erate to  the  interest  of  the  tax  payers.  Occasions  might  be  when 
the  legislative  body  would  issue  bonds  which,  while  permitting  a 
favorable  showing  by  the  administration,  might  be  illegal  as  well 
as  impolitic.  Examples  are  bonds  for  equipment,  regular  en- 
gineering, and  refunding  purposes.  Under  the  present  circum- 
stances if  such  indebtedness  were  refused  by  bond  buyers  the 
legislative  body  acting  as  sinking  fund  trustees  might  purchase 
the  questionable  issue.  On  the  other  hand,  an  independent  board 
of  sinking  fund  trustees  would  probably  be  inclined  to  act  only 
for  the  broader  concern  of  the  public.  Reduction  in  salaried  posi- 
tions, though  not  the  centralization  of  administration,  could  be 
secured  equally  well  by  creating  a  sinking  fund  commission  to 
serve  without  pay,  and  by  providing  that  the  city  treasurer  or 
accountant  should  act  as  secretary. 

Purchasing  provisions  of  the  charter  do  not  provide  that  the 
purchasing  agent  shall  buy  other  than  supplies  and  materials,  al- 
though the  local  agent  has  extended  his  activities  to  include  cer- 
tain contractual  services  known  in  budgetary  parlance  as  "con- 
tractual services"  or  "services  other  than  personal."  Charter 
amendment  should  be  made  to  demarcate  the  sphere  of  the 
agfent;  or  at  least  to  designate  minimum  activities,  leaving  their 
extension  to  the  option  of  the  city  manager.  Probably  centralized 
purchasing  would  be  profitable  for  telephone  service ;  repairs  by 
contract  or  open  market  order,  whether  to  equipment,  building  or 
structures;  insurance,  both  fire  and  liability;  public  utility  ser- 
vices except  transportation  charges;  and  other  contractual  ser- 


62  CITY   MANAGER   PLAN 

vices  such  as  legal  advertising,  boarding  of  live  stock,  rent  of 
lands  and  buildings,  storage  of  equipment,  horseshoeing,  etc. 

Definite  charter  provision  should  be  made  for  the  creation  of 
a  stores  fund  with  which  goods  may  be  purchased,  stored  and 
sold  to  departments  without  profit;  for  the  reimbursements  of 
this  fund  by  warrants  drawn  against  the  proper  appropriation 
codes  when  stores  are  delivered ;  and  as  to  the  method  of  ad- 
justing  the  account  at  the  close  of  the  fiscal  year.  Authorization 
should  also  be  made  for  the  sale  of  services  and  supplies  between 
departments  where  the  transfer  of  charges  is  one  of  account  and 
no  money  passes  through  the  city  treasury. 

It  would  also  be  well  to  specify  more  clearly  the  circumstances 
surrounding  emergency  orders,  requiring  that  the  facts  of  the 
emergency  shall  be  certified  to  the  purchasing  agent  within 
twenty-four  hours  after  the  purchase  is  made,  and  that  a  confirm- 
ing order  shall  be  immediately  sent  to  the  vendor.  In  this  con- 
nection the  creation  of  departmental  petty  cash  funds  should  be 
definitely  allowed  carefully  hmiting  their  use  so  as  to  minimize 
abuse. 

Further  provision  should  be  made  that  when  bids  are  opened, 
and  before  contracts  are  let,  the  figures  should  be  public  to  com- 
petitors and  to  citizens  sufficiently  interested  to  inquire  at  the 
purchasing  agent's  office.  To  this  end  bids  should  be  tabulated 
upon  standard  sheets  and  become  permanent  records.  Objection 
has  been  made  that  the  publicity  of  bids  in  contrast  to  the  practice 
of  private  firms  is  not  conducive  to  lowest  prices.  On  the  other 
hand,  secrecy  of  bids  places  the  purchasing  agent  liable  to  the 
temptation  of  deals  with  corrupt  vendors,  and  robs  the  public  and 
competitors  of  easy  means  of  detection.  This  situation,  as  in 
Dayton,  may  be  remedied  by  administrative  order,  but  a  model 
charter  should  leave  no  vagueness  of  this  character. 

If  city  advertising  is  done  exclusively  in  a  daily  newspaper  of 
general  circulation  which  bids  the  lowest  price  per  unit  for  such 
services,  there  is  a  remarkable  saving  in  charges  of  this  char- 
acter. However,  the  Dayton  charter  does  not  permit  a  municipal 
journal  to  be  substituted  in  case  a  newspaper  contract  has  been 
entered  into,  although  frequently  it  would  be  advantageous  to  do 
so.  With  certain  extensive  ordinances  such  as  the  city  budget, 
building  code,  traffic  rules,  etc.,  newspaper  publication  is  not  only 
expensive,  but  it  is  not  particularly  effective.  In  such  instances  it 
would  be  desirable  to  publish  in  pamphlet  form  as  an  issue  of  a 


.    OF   GOVERNMENT  63 

journal  which  would  be  less  expensive,  furnish  a  means  of  per- 
manence, and  allow  for  distribution  among  persons  affected  or 
interested. 

The  absurdity  of  certain  of  the  Dayton  civil  service  provisions 
will  be  so  apparent  to  even  the  casual  student  of  government  that 
these  sections  merit  only  brief  mention  and  discussion : 

(a)  The  unclassified  service  includes  the  heads  of  divisions, 
as  well  as  of  departments,  thereby  removing  the  promotion  in- 
centive for  employees,  and  offering  a  stimulus  to  the  creation  and 
extension  of  divisions  by  an  unscrupulous  administration  inter- 
ested in  extending  the  spoils  sjstem. 

(b)  The  chief  examiner  is  empowered  to  fill  vacant  posi- 
tions, after  consultation  with  the  city  manager,  from  the  entire 
eligible  list.  Certainly'  such  a  provision  lays  the  merit  system 
wide  open  to  abuse,  and  might  even  nullify  it  were  the  appointing 
officers  so  inclined.  The  citj^  manager  of  Dayton  is  appointing 
from  the  top  of  the  eligible  list,  but  a  change  in  the  administra- 
tion policies  would  permit  the  filling  of  vacancies  with  ward 
politicians  of  minimum  ability. 

(c)  Contrary  to  approved  practices,  it  is  provided  that  dis- 
charged employees  are  entitled  to  a  public  hearing  before  the  civil 
service  board.  Such  a  program  will  find  little  defense  among 
persons  familiar  with  civil  service  practice.  A  recent  experience 
of  Dayton  with  a  public  hearing  of  this  kind  has  proven  this 
scheme  to  be  conducive  to  insubordination,  makes  the  depart- 
mental head  reluctant  to  discharge  incompetents,  and  furnishes 
an  opportunity  for  the  creating  of  political  capital  by  the  opposi- 
tion. 

There  are  a  number  of  commendable  features  in  the  civil 
service  chapter,  notably  those  relating  to  the  standardization  of 
salaries,  requiring  a  probationary  period  of  appointment,  cer- 
tification of  all  pay  rolls,  and  the  prevention  of  political  activity 
on  the  part  of  employees.  These  should  be  retained,  but  cer- 
tainly the  other  provisions  cited  are  in  urgent  need  of  amend- 
ment. 

The  principal  weaknesses  of  the  special  assessment  sections 
relate  to  the  levying  of  assessments  previous  to  the  making  of 
improvements.  It  is  impractical  for  the  city  engineer  to  estimate 
exactly  the  cost  of  improvements,  in  consequence  of  which  the 
figures  are  usually  excessive,  necessitating  rebates  at  the  con- 
clusion of  the  construction.    However,  when  this  amount  is  small, 


64  CITY   MANAGER   PLAN 

and  no  demand  is  made  by  the  tax  payer,  the  surphis  is  turned 
into  a  fund  to  meet  small  deficiencies.  The  devising  of  some 
plan  which  will  eliminate  these  difficulties  without  involving  the 
objections  arising  from  fixing  the  assessments  after  the  im- 
provement is  made  would  be  an  interesting  study. 

The  extensive  use  which  municipalities  are  now  making  of 
special  assessments  for  purposes  other  than  public  improve- 
ments, should  prompt  some  provisions  for  the  treatment  of  these 
funds  aside  from  the  regular  assessment  procedure.  Where  as- 
sessments are  used  for  special  street  lighting,  vault  cleaning,  side- 
walk cleaning,  weed  cutting,  street  flushing,  street  sprinkling, 
etc.,  regular  budgetary  appropriations  should  be  made  for  these 
services,  with  the  stipulation  that  the  assessment  income  should 
be  turned  into  the  general  fund  as  a  regular  revenue ;  and  that 
in  those  cases  in  which  such  assessment  is  placed  on  the  tax  du- 
plicate it  should  be  returned  when  collected  to  the  general  fund. 

Some  exception  has  been  taken  to  the  franchise  regulation 
which  prohibits  the  regranting  of  a  franchise  prior  to  one  year  of 
its  expiration,  a  section  included  to  prevent  franchise  jobbing  by 
a  controlled  legislative  body.  It  has  not  been  infrequent  in  mu- 
nicipal history  for  a  council  to  annul  a  franchise  and  in  its  place 
grant  a  new  one  for  a  long  period.  On  the  other  hand  it  is  fre- 
quently to  local  advantage  to  secure  improvements  from  public 
utilities,  or  the  union  of  separate  companies,  in  return  for  a  new 
franchise  granted  before  the  expiration  of  the  older  ones.  Prob- 
ably with  the  other  safeguards  which  have  been  thrown  around 
the  granting  of  franchises  this  section  might  be  eliminated. 

No  sections  of  the  Dzyton  charter  have  been  more  widely 
copied  than  those  relating  to  appropriations,  doubtless  because 
this  city  has  been  one  of  the  few  to  detail  appropriation  pro- 
cedure. However,  after  the  experience  derived  from  the  prepara- 
tion of  two  budgets  under  these  sections,  and  with  a  knowledge 
of  the  more  recent  developments  in  budget  making,  certain  minor 
changes  urgently  recommend  themselves : 

(a)  The  fiscal  year  should  begin,  not  necessarily  with  the 
calendar  year  but  at  a  time  when  the  principal  payments  of  ac- 
crued city  revenues  are  anticipated. 

(b)  The  classification  of  expense  estimates  should  be  uni- 
form for  the  main  functional  divisions  of  each  department, 
rather  than  "as  nearly  uniform  as  possible."  ' 


OF   GOVERNMENT  65 

(c)  The  clause  requiring  that  the  first  pubUcation  of  the 
budget  be  made  after  the  pubUc  hearings  should  be  changed  to 
read  before.  This  was  an  unintentional  error.  A  provision  re- 
quiring that  the  manager's  estimate  of  expense  be  pul)lished  par- 
allel with  the  appropriations  of  the  commission  has  been  found 
unnecessary. 

(d)  Recently  considerable  change  in  budget  procedure  has 
been  suggested  by  the  publication  of  a  budget  program  for  the 
city  of  New  York  for  1915,  as  devised  by  the  New  York  bureau 
of  municipal  research.  The  details  are  too  long  to  be  discussed 
here  but  are  worthy  of  consideration  by  any  charter  drafting 
body. 

In  providing  for  the  salaries  and  compensation  of  employees, 
the  charter  states  that  the  city  manager  shall  fix  the  number  and 
salaries  of  officers  and  employees  excepting  those  in  the  division 
of  fire  and  police,  and  the  heads  of  departments.  Such  a  section 
is  theoretically  unsound  as  delegating  to  an  appointive  officer 
powers  which  should  be  retained  by  the  legislative  body  which  is 
responsible  to  the  people.  This  was  recognized  by  the  city  man- 
ager of  Dayton  who  voluntarily  relinquished  this  charter  right, 
and  the  salaries  and  period  of  service  of  each  employee  are 
made  an  integral  part  of  the  appropriation  ordinance. 

The  charter  by  requiring  that  the  money  shall  be  in  the  treas- 
ury before  obHgations  are  entered  into  automatically  limits  the 
period  of  contract  to  one  year.  In  the  main,  this  has  proven  ben- 
eficial but  absolutely  prevents  long-term  contracts  for  public 
lighting,  garbage  disposal,  etc.  Contracts  of  this  character  should 
be  exempt  from  this  provision. 

These  are  some  of  the  important  changes  found  desirable  in 
the  Daj-ton  charter  after  one  j-ear  of  operation.  Doubtless  there 
are  others  which  further  experience  will  develop.  This  docu- 
ment was  never  presented  as  the  last  work  in  charter-making, 
but  claims  to  be  only  a  step  in  advance  over  those  in  common 
use.  Cities  contemplating  the  adoption  of  the  Dayton  model  of 
government  should  profit  by  the  weaknesses  which  have  arisen, 
remembering  that  the  most  adequate  charter,  if  it  contains  ad- 
ministrative procedure,  will  require  periodic  amendment  in  or- 
der to  take  advantage  of  improvements  developed  through  the 
experience  of  their  own  and  other  cities. 


GENERAL  DISCUSSION 


THE  CITY  MANAGER,  QUALIFICATIONS, 
POWERS  AND  DUTIES' 

The  city  manager  is  an  appointive  ofificer  selected,  by  reason 
of  his  peculiar  knowledge  of  municipal  affairs  and  because  of 
his  administrative  ability,  to  fill  the  position  of  chief  executive  of 
a  vast  public  corporation,  with  little  restriction  upon  his  power 
and  with  only  one  command — produce  results. 

Qualifications. — Municipal  managership  is  a  new  profession. 
As  the  requirements  of  the  office  are  largely  untried,  the  charter 
framers  displayed  keen  foresightedness  in  making  the  qualifica- 
tions for  service  of  broad  general  character  without  regard  to 
hampering  details.  Theirs  was  the  intent  to  secure  the  best  man 
at  a  price  which  would  be  justified  by  the  results  he  would  pro- 
duce. These  provisions  as  to  his  qualifications  are  so  general 
and  so  liberal  in  their  tendencies  that  the  restrictions  take  on 
merely  a  negative  character.  For  instance,  the  charters  generally 
state  that  the  city  manager  need  not  be  selected  from  citizens 
resident  in  the  city,  but  may  be  appointed  from  any  locaHty,  as 
it  is  a  question  of  ability  rather  than  residence. 

Dr.  Washington  Gladden  at  the  Conference  of  Ohio  Cities  in 
IQI2  said : 

Still  another  shackle  would  be  broken  if  our  new  constitution  should 
remove  all  those  limitations  by  which  the  people  are  restricted,  in  selecting 
their  officials,  to  residents  of  their  own  city.  Why  should  not  the  city 
corporation  be  free  in  choosing  its  employees — to  take  them  wherever  it 
can  find  them — to  get  the  best  men  without  any  reference  to  their  place 
of  residence?  No  business  corporation  would  submit  to  such  a  restriction, 
that  it  should  employ  in  an  executive  capacity  none  but  its  own  stock- 
holders or  none  but  residents  in  its  own  community.  Cases  often  arise  in 
which  far  more  efficient  service  might  be  secured  by  going  outside  of  the 
municipality;  for  special  services  we  sometimes  do  go  outside;  but  why 
should  we  limit  ourselves  at  all  ?  It  is  sometimes  assumed  that  a  resident 
of  the  neighborhood  would  know  the  people  better,  and  would  then  be  able 
to  serve  them   more  acceptably;   but  the  fact   is   that,   as   a  rule,   the  less 

»By  Harry  Aubrey  Toulmin,  Jr.,  J.D.,  F.S.S.,  "The  City  Manager,  a 
New  Profession,"  p.  76-97. 


68  CITY   MANAGER   PLAN 

people  a  municipal  officer  knows,  the  better  it  is  for  the  service.  The  great 
curse  of  municipal  government  arises  from  the  fact  that  the  officials  know 
too  many  people,  and  are  under  too  many  obligations.  It  will  take  a  com- 
petent executive  but  a  very  short  time  to  get  all  the  knowledge  of  local 
conditions  that  will  be  of  any  use  to  him. 

His  personal  qualifications  above  all  are  essential.  His  po- 
litical beliefs  are  especially  mentioned  as  a  thing  which  shall 
not  be  considered  a  bar  in  any  way  whatsoever  to  his  candidacy. 
The  test  of  politics  is  a  dead  letter ;  the  measurement  of  effi- 
ciency is  a  live  issue. 

So  much  for  the  general,  though  meager,  qualifications  so 
briefly  enumerated  by  the  charters.  They  are  chiefly  concerned 
with  what  he  is  not  to  be.  The  unspoken  qualifications,  un- 
doubtedly the  chiefest  in  the  makeup  of  a  man  in  such  a  position 
are,  first,  absolute,  unswerving  adherence  to  his  own  view  that 
efficiency,  and  hence  results  for  the  city,  is  the  paramount  thing; 
second,  administrative  experience  in  business  involving  the 
maintenance  of  engineering  works  and  the  necessary  technical 
education ;  and  third,  the  ability  to  lead  through  tact  as  well  as 
knowledge. 

The  New  Profession's  Personnel. — The  city  managers  se- 
lected for  Staunton,  Sumter,  Springfield  and  Dayton  have  pre- 
eminently these  qualities.  The  selections  in  each  case  by  the 
commissions  have  been  the  result  of  patient  search  and  careful 
thought  and  profound  study  of  what  were  the  requirements  of 
the  position  and  qualities  which  one  should  have  to  adequately 
fill  it. 

The  first  city  managers  of  Dayton  and  Springfield  are  illus- 
trative of  the  type  of  men  required  for  the  position.  Mr.  H.  M. 
Waite  was  appointed  city  manager  of  Dayton.  He  is  a  civil 
engineer  by  profession,  graduating  from  the  Massachusetts  Insti- 
tute of  Technology.  He  has  been  superintendent  of  various 
divisions  of  the  large  railways  of  this  country.  He  made  a 
remarkable  record  as  city  engineer  for  the  city  of  Cincinnati. 
In  that  position  he  distinguished  himself  for  efficiency  of  admin- 
istration, a  knowledge  of  civic  affairs  and  an  absolute  unswerv- 
ing loyalty  to  the  idea  of  efficiency  in  public  office.  Equipped 
with  a  profound  sense  of  the  importance  of  public  service,  he 
chose  his  subordinates  with  an  eye  to  their  ability  to  serve  the 
people  rather  than  a  political  machine ;  he  was  subservient  to  no 
party  and  to  the  dictates  of  no  ascendant  political  organization. 
At  the  time  of  his  assumption  of  office  on  January  i,  1914,  in 


OF    GOVERNMENT  69 

the  city  of  Dayton,  he  was  forty-three  years  of  age,  a  man  of 
wide  technical  and  administrative  experience,  possessing  a  record 
of  efificient  service  under  that  advanced  administration  in  the 
city  of  Cincinnati  in  the  late  regime  of  Mayor  Hunt.  A  most 
telling  indication  of  his  policies  was  his  first  statement  upon  the 
assumption  of  power  in  his  new  position.  "I  insist,"  he  said, 
"when  I  employ  men  for  work  in  my  department  that  they  be 
selected  for  their  efficiency  and  not  because  of  any  political 
affiliation  or  in  payment  of  any  political  debts,  and  this  same 
policy  I  expect  to  adhere  to  in  Dayton."  That  is  a  platform 
well  worth  while  indeed. 

The  city  manager  of  Springfield  is  another  man  with  a  rec- 
ord of  most  excellent  service.  Mr.  Charles  E.  Ashburner,  also 
aged  forty-three,  lately  of  Lynchburg,  Virginia,  was  selected 
first  city  manager  for  the  city  of  Springfield.  He  is  a  native  of 
England,  the  son  of  an  officer  in  the  English  army.  After  an 
excellent  education  in  Germany  and  France  he  came  to  America 
and  found  his  first  employment  as  civil  engineer  in  the  Rivers 
and  Harbors  Bureau  of  the  United  States.  Later,  he  was  en- 
gaged by  a  contracting  firm  on  engineering  projects  in  various 
countries  of  the  world  and  then  was  employed  by  a  railway 
in  its  engineering  department.  His  first  municipal  experience 
was  in  Staunton,  Virginia,  where  he  becam^  city  manager,  when 
the  general  manager  was  installed  there.  He  was  therefore 
probably  the  first  city  manager  in  America;  furthermore,  he 
installed  the  excellent  city  manager  system  now  in  force  in  Sum- 
ter, North  Carolina.  After  that,  he  went  back  to  his  profession 
from  which  he  was  called  lately  to  assume  the  place  of  chief 
executive  of  this  city  of  fifty  thousand. 

When  the  commission  selects  the  city  manager,  it  is  a  part 
of  its  power  to  fix  his  salary.  The  spirit  of  the  charters  in  the 
larger  cities,  as  in  Springfield  and  Dayton,  is  to  have  the  best 
at  any  price.  The  commissioners  are  at  liberty  to  bargain  with 
a  prospective  candidate  in  regard  to  the  place  and  to  secure  the 
best  man  their  finances  will  justify,  according  to  the  customary 
method  in  the  business  world. 

To  the  uninitiated  sometimes  the  salary  of  a  city  manager 
looks  high.  It  is,  and  in  this  matter  of  high  salaries  lies  a  grave 
danger  for  the  success  of  the  plan.  A  large  salary  can  only  be 
justified  when  its  recipient  saves  the  city  the  excess  and  more 
by  his  economy  of  administration  without  impairment  of  results. 


70  CITY   MANAGER   PLAN 

A  high  salary  is.  economy  when  it  purchases  ability  which  en- 
ables the  public  corporation  not  only  to  pay  the  man,  but  to 
secure  results  and  produce  a  profit  instead  of  the  usual  yearly 
deficit.  It  is  not  a  matter  of  extravagance  or  erroneous  business 
policy  to  pay  the  head  of  a  private  corporation,  numbering  its 
assets  in  the  millions,  an  excellent  salary.  No  more  should  it  be 
unsound  policy  to  pay  well  a  man  who  administers  a  public  cor- 
poration of  like  tangible  value,  and  of  far  more  import  to  the 
citizens,  who  are  stockholders  in  it  in  a  thousand  intangible 
ways.  For  the  very  life  of  the  citizenry  itself  is  bound  up  in 
the  sane  determination  of  the  city's  affairs.  It  is  a  vital  fact  of 
existence  itself  which  demands  that  we  should  pay  the  price,  if 
we  only  secure  that  efficiency  which  means  health  and  protection 
and  the  opportunity  to  produce  as  we  should.  Both  business  and 
social  reasons  proclaim  it  a  wise  thing  indeed  to  pay  well  a 
competent  man  who  will  make  these  things  possible.  Believing 
this  to  be  true,  the  little  city  of  Staunton  pays  her  manager 
$2,500  per  annum ;  Sumter  pays  her  manager  $3,300 ;  Springfield 
pays  $6,000;  and  Dayton  pays  $12,500.  These  are  goodly  annual 
sums,  but  if  the  theory  of  the  new  government  upon  which 
these  salaries  are  paid  is  carried  out,  there  will  be  ample  justifi- 
cation in  the  resulting  economy. 

The  selection  of  manager  devolves  solely  on  the  commission. 
It  is  a  very  vital  task  and  one  of  profound  moment  to  the  peo- 
ple. It  is  of  telling  importance  to  the  commissioners  themselves, 
for  their  success  as  a  body  depends  largely  upon  the  qualities 
which  the  man  they  select  possesses. 

It  behooves  then  to  weigh  with  exceeding  care  this,  the 
chiefest  officer  in  the  municipality,  and  to  cull  out  from  those 
proposed  for  the  office  all  the  ineligible,  and  to  secure  the  fittest 
remaining.  It  is  true  that  they  are  at  liberty  to  remove  him  at 
will,  but  this  may  not  always  be  a  practical  power  and  may  not 
always  be  exercised  in  time  to  prevent  the  fruition  of  his  wrong- 
ful acts.  Theirs  is  the  option  either  to  let  him  alone  so  long  as 
he  conducts  the  affairs  of  his  office  satisfactorily  to  the  people 
and  to  the  commission  or  they  must  completely  remove  him  from 
office.  They  do  not  have  the  privilege  of  retaining  him  in  office 
and  directing  the  methods  that  he  may  pursue  for  the  achieve- 
ments of  results.  Further  than  this,  of  course,  the  cit^  manager 
is  always  subject  to  recall  directly  by  the  people.  This  affords 
the  commission  a  peculiar  advantage.     In   case  affairs  are  not 


OF    GOVERNMENT  71 

conducted  properly,  and  it  is  apparently  the  fault  of  execution, 
and  not  the  fault  of  legislation,  then  the  commission,  who  are 
solely  responsible  for  the  inauguration  of  policies  and  plans,  are 
exonerated  from  blame,  and  the  people  can  vent  their  wrath 
upon  the  city  manager  alone  if  they  so  desire. 

Powers. — Unique  are  the  powers  of  the  city  manager.  In 
him  are  concentrated  all  functions  of  appointment,  of  control  of 
employees  and  advice  to  the  commission.  In  the  Dayton  and 
Springfield  plans  the  power  is  so  extensive,  particularly  in  the 
former  city,  that  the  term  "controlled-executive"  is  hardly  applic- 
able any  more. 

One  thing  is  evident.  His  methods  of  achieving  results  are 
uncontrolled.  The  end,  not  the  means,  is  the  objective  in  these 
modern  instruments  of  government.  The  powers  and  duties  of 
chief  executive  of  the  modern  American  city  are,  therefore,  quite 
unprecedented. 

The  charter  of  Springfield  enumerates  succinctly  his  powers 
in  the  following  manner : 

"(o)     To  see  that  the  laws  and  ordinances  are  enforced. 

"(&)  Except  as  herein  provided,  to  appoint  and  remove 
all  heads  of  departments,  and  all  subordinate  ofhcers  and  em- 
ployees of  the  citj';  all  appointments  to  be  upon  merit  and  fit- 
ness alone,  and  in  the  classified  service  all  appointments  and 
removals  to  be  subject  to  the  civil  service  provisions  of  this 
charter. 

"(c)  To  exercise  control  over  all  departments  and  divisions 
created  herein  or  that  hereafter  may  be  created  by  the  commis- 
sion. 

" {d)  To  see  that  all  terms  and  conditions  imposed  in 
favor  of  the  city  or  its  inhabitants  in  any  public  utility  franchise 
are  faithfully  kept  and  performed ;  and  upon  knowledge  of  any 
violation  thereof  to  call  the  same  to  the  attention  of  the  city 
solicitor,  who  is  hereby  required  to  take  such  steps  as  are  neces- 
sary to  enforce  the  same. 

"(e)  To  attend  all  meetings  of  the  commission,  with  the 
right  to  take  part  in  the  discussions  but  having  no  vote. 

"(/)  To  recommend  to  the  commission  for  adoption  such 
measures  as  he  may  deem  necessary  or  expedient. 

"(.9)  To  act  as  budget  commissioner  and  to  keep  the  city 
commission  fully  advised  as  to  the  financial  condition  and  needs 
of  the  city. 


72  CITY   MANAGER   PLAN 

"(h)  To  perform  such  other  duties  as  may  be  prescribed 
by  this  charter  or  be  required  of  him  by  ordinance  or  resolution 
of  the  commission." 

The  city  manager  in  this  city  is  also  empowered  to  act  as 
the  platting  commissioner.  This  is  of  particular  import  in  these 
days  when  it  is  very  advisable  to  have  uniform  method  and  plan 
of  arranging  the  city.  City  platting  has  become  a  science  in  itself 
and  should  be  administered  by  an  expert  who  has  wide  knowl- 
edge of  the  needs  of  the  city,  its  urgent  demands  and  the  possi- 
bilities for  the  future. 

Dayton  empowers  her  city  manager  in  the  following  manner : 

"(o)     To  see  that  the  laws  and  ordinances  are  enforced. 

"(6)  To  appoint  and,  except  as  herein  provided,  remove  all 
directors  of  departments  and  all  subordinate  officers  and  em- 
ployees in  the  departments  in  both  the  classified  and  unclassified 
service;  all  appointments  to  be  upon  merit  and  fitness  alone, 
and  in  the  classified  service  all  appointments  and  removals  to  be 
subject  to  the  civil  service  provisions  of  this  charter: 

"(c)  To  exercise  control  over  all  departments  and  divisions 
created  herein  or  that  may  be  hereafter  created  by  the  Commis- 
sion; 

"(d)  To  attend  all  meetings  of  the  Commission  with  the 
right  to  take  part  in  the  discussion  but  having  no  vote; 

"(e)  To  recommend  to  the  Commission  for  adoption  such 
measures  as  he  may  deem  necessary  or  expedient : 

"(/)  To  keep  the  Commission  fully  advised  as  to  the  finan- 
cial condition  and  needs  of  the  city; 

"(g)  To  perform  such  other  duties  as  may  be  prescribed  by 
this  charter  or  be  required  of  him  by  ordinance  or  resolution  of 
the  Commission." 

As  exact  knowledge  of  conditions  in  the  departments  and 
among  the  employees  is  one  of  the  requirements  or  one  of  the 
basic  ideas  in  the  new  city  government,  it  is  quite  in  keeping  to 
direct  that  the  city  manager  may  without  notice  cause  an  ex- 
tensive investigation  into  the  affairs  of  any  departments  under 
his  control  or  the  conduct  of  any  officer  or  employee.  This 
power  of  the  manager  to  investigate  is  coupled  with  the  power 
to  compel  the  attendance  of  witnesses  and  the  production  of 
books  and  to  punish  for  contempt  in  order  to  enforce,  the  carry- 
ing out  of  his  orders  made  in  such  manner. 


OF   GOVERNMENT  12, 

In  Hickory,  North  Carolina,  the  charter  sets  forth  the 
powers  of  the  city  manager,  not  in  an  orderly  fashion  as  in  the 
well-drawn  charters  of  the  larger  cities,  but  in  an  equally  effec- 
tive way.    The  powers  it  enumerates  are  about  as  follows : 

(a)  He  shall  attend  all  meetings  of  the  council  and  make 
recommendations  thereto  and  furnish  information  to  it  as  may 
seem  necessary  within  the  wisdom  of  council  or  manager. 

(&)  He  shall  require  an  accurate  report  from  those  be- 
neath him  in  various  departments  as  to  the  performance  of  their 
duties. 

(c)  He  shall  sign  all  contracts,  licenses  and  other  docu- 
ments on  behalf  of  the  city. 

(rf)     He  has  the  power  of  investigation. 

(^)  He  has  the  power  of  revocation  of  licenses  pending 
action  of  the  city  council. 

(/)  He  has  power  over  public  works  and  buildings,  con- 
struction of  public  improvements,  as  highways,  bridges,  etc. ;  he 
has  control  of  public  utilities,  whether  publicly  or  privately 
owned;  and  he  has  charge  of  all  the  water  supply  and  sewerage 
systems. 

{g)  He  has  power  to  suspend,  fine  or  dismiss  members  of 
the  police,  fire,  waterworks,  sewerage  and  street  departments  in 
the  interests  of  discipline. 

(/j)  He  shall  submit  a  list  to  the  city  council  from  which 
are  to  be  appointed  for  the  term  of  one  year  the  officers  and 
employees  of  the  police,  fire,  street,  water  and  sewerage  depart- 
ments. 

In  LaGrande,  Oregon,  the  provision  as  to  the  power  of  the 
city  manager  is  a  very  general  and  consequently  a  very  excellent 
one.  In  this  city  the  general  manager,  so  called,  has  absolute 
control  and  supervision  over  every  office  and  the  employees 
therein,  except  the  commissioners  and  the  municipal  judge,  and 
has  power  of  appointment  of  all  other  officers.  He  has  the 
power  to  discharge  his  appointees  with  or  without  cause.  He 
is  to  see  that  the  business  of  the  corporation  is  transacted  "in 
a  modern,  scientific  and  business-like  manner."  He  is  to  keep 
records  like  those  kept  by  a  private  corporation.  He  is  account- 
able to  the  commission  for  results. 

From  an  analysis  of  the  foregoing  respective  charters  in  the 
matter  of  powers  given  the  city  manager,  the  following  are  ap- 
parently the  general  powers  usually  conferred  upon  that  official : 


74  CITY   MANAGER    PLAN 

(a)  He  is  charged  with  the  enforcement  of  laws  and  ordi- 
nances. 

(b)  He  administers  the  affairs  of  the  departments  and  is 
responsible  for  the  results  obtained  therefrom. 

(c)  He  appoints  and  dismisses  the  employees  whose  work 
will  produce  the  results  he  is  responsible  for. 

(d)  He  advises  the  council  and  attends  the  meetings  for 
that  purpose,  supplementing  his  advice  with  formal  written  re- 
ports, but  he  has  no  vote. 

(e)  He  estimates  the  financial  needs  of  the  corporation  and 
acting  as  expert  budget  maker  he  is  financial  adviser  of  the  com- 
mission. 

(/)  He  has  the  general  powers  of  investigation  and  is  the 
general  agent  of  the  commission. 

Control  of  Salaries. — In  the  discussion  of  the  departments, 
many  of  the  limitations  to  the  authority  of  city  manager  have 
been  already  considered,  but  there  are  a  number  of  miscellaneous 
powers  untouched  upon.  In  city  government,  no  less  than  in 
war,  a  control  over  the  payroll  of  the  active  participants,  as 
the  officers,  is  a  potent  thing.  With  the  exception  of  department 
heads,  direct  employees  of  the  commission,  police  and  fire  force, 
and  board  members  in  the  unclassified  service,  all  the  vast  num- 
ber of  remaining  employees  and  officers  have  their  compensation 
fixed  virtually  by  the  city  manager.  This  is  true  of  one  charter 
at  least,  that  of  Dayton.  And  in  this  instrument  it  is  still 
further  wisely  provided  that  uniform  salaries  shall  be  paid  for 
like  services,  as  such  services  shall  be  graded  by  the  city  manager 
in  harmony  with  the  civil  service  rules.  Upon  being  so  fixed,  a 
report  is  made  to  the  city  emplo3'ment  officer  of  the  size  of 
salary  for  the  particular  office.  In  fixing  the  limit  of  these 
salaries  the  amount  of  the  bond  which  the  particular  officer  may 
be  called  upon  to  give  for  the  faithful  and  honest  performance 
of  his  duties  is  also  determined  by  the  city  manager. 

Financial  Control. — The  city  manager  should  properly  be  in 
intimate  relationship  with  the  curtailment  of  expenditures.  He 
should  be  in  daily  contact  with  the  sources  of  income  and  outgo, 
for  he  is  the  expert  financial  adviser  of  the  commission,  often 
a  member  of  the  sinking  fund  board,  and  takes  an  active  part  in 
preparing  the  budget.  It  is  therefore  provided,  in  9ne  case  at 
least,  that  no  warrant  for  the  payment  of  a  claim  shall  be  issued 
by  the  city  accountant  until  such  warrant  is  countersigned  by 


OF   GOVERNMENT  75 

the  city  manager  as  well  as  by  the  head  of  the  department  in- 
curring the  expense.  Furthermore,  "each  order  of  purchase  or 
sale,"  is  "to  be  approved  and  countersigned  by  the  city  manager 
or  his  deputy"  before  the  city  purchasing  agent  can  close  a 
purchase  or  contract.  The  letting  of  contracts  in  this  same 
charter  is  checked  by  the  necessary  approval  of  the  city  manager 
and  commission  before  the  award  can  be  made,  whenever  the 
contract  is  made  for  an  amount  over  $500.  The  same  charter 
provides  that  the  city  manager  shall  be  a  member  of  the  board 
of  revision  of  assessments ;  this  is  certainly  an  excellent  pro- 
vision, for  it  gives  the  city  manager  an  intimate  knowledge  of 
the  income  of  the  city  on  the  side  of  taxation. 

No  other  charter  provides  so  liberally  for  control  by  the 
expert.  It  commends  itself  as  a  most  sensible  provision,  for  it 
gives  the  controlling  agent  in  the  government  the  whip  hand 
to  get  results.  Under  the  old  system  remonstrance  or  removal— 
if  removal  were  ever  accomplished  when  the  culprit  had  political 
friends — was  the  sole  means  of  relieving  inefficiency.  The  city's 
money  is  paid  for  results,  and  if  in  the  judgment  of  the  man 
seeking  them,  they  are  not  being  obtained,  there  should  be  less 
pay  or  no  pay.  It  is  characteristic  of  the  new  order  that  em- 
ployees are  hired  to  produce,  and  not  to  become  merely  of  more 
or  less  decorative  value. 

Appointive  Power. — It  will  also  be  noticed  that  his  appoin- 
tive power  is  very  generous  in  all  the  charters.  For  instance, 
in  Hickory,  North  Carolina,  he  furnishes  a  list  of  candidates 
from  which  are  selected  officers  and  employees,  in  the  police, 
fire,  street,  waterworks  and  sewerage  departments.  This  pro- 
vision is  weaker  than  those  usually  made  and  does  not  seem 
to  be  in  keeping  with  the  spirit  of  the  plan.  The  officials  so  ap- 
pointed are  only  to  hold  office  for  the  meager  tenure  of  one 
year,  and  that  is  probably  not  long  enough  for  the  personnel  to 
take  hold  heartily  of  their  work  as  a  permanent  thing  or  devote 
their  best  energies  to  it.  It  also  makes  difficult  the  securing  of 
really  competent  men,  for  a  competent  man  does  not  like  to  have 
his  best  efforts  cut  off  at  the  very  time  when  they  are  beginning 
to  bear  fruit.  If  the  manager  is  to  be  responsible,  he  should 
be  entitled  to  a  chance  to  do  things  right  as  well  as  a  chance 
to  do  things  wrong  which  would  bring  blame  upon  him.  Under 
this  plan  he  is  responsible,  without  having  the  power  to  do  things 
which  would  make  him  justly  liable,  for  his  employees  are  in  a 


76  CITY    MANAGER   PLAN 

large  measure  not  of  his  appointing,  and  those  who  are,  are  only 
there  for  a  short  period. 

In  Daj'ton,  the  city  manager  appoints  two  general  classes 
of  men.  The  class  of  major  executives  serve  as  heads  of  de- 
partments, as  the  city  attorney,  director  of  public  safety,  and 
director  of  finance.  He  also  appoints  the  minor  executives  or 
those  subordinate  to  the  heads  of  departments,  as  the  health 
officer,  chief  of  police,  fire  chief,  city  accountant,  city  treasurer 
and  purchasing  agent.  He  may  generally  select  for  his  em- 
ployees men  resident  anywhere.  He  is  expected  to  achieve 
efficiency  and  there  is  no  restriction  as  to  the  place  in  which  he 
may  seek  a  competent  man  to  fill  the  position  he  has  in  mind. 

In  Springfield,  all  others  than  those  appointed  by  the  com- 
mission and  enumerated  in  a  prior  discussion  of  that  body,  are 
appointed  by  the  city  manager.  Springfield  has  not  gone  as  far 
in  her  charter  as  other  charters  have  in  the  freedom  of  appoint- 
ment which  is  usually  conferred  upon  their  chief  executive. 
For  the  same  reason  that  there  is  an  error  in  the  charter  of 
Hickory,  North  Carolina,  there  is  an  error  in  the  Springfield 
charter  in  restricting  the  manager  in  this  fashion,  for  his  ap- 
pointive and  removal  power  is  a  very  potent  thing  to  enable 
him  to  secure  the  results  the  city  expects  him  to  achieve. 

In  LaGrande,  Oregon,  the  city  manager  appoints  the  city 
recorder,  city  treasurer,  city  attorney,  chief  of  police,  fire  chief, 
city  engineer,  superintendent  of  waterworks,  health  officer  and 
street  superintendent.  These  men  are  subject  to  recall  by  him, 
with  or  without  cause. 

In  Phoenix,  Arizona,  the  city  manager  appoints  the  city 
clerk,  city  treasurer,  city  assessor,  city  collector,  city  attorney, 
engineer,  chief  of  police,  fire  chief,  and  superintendent  of  streets. 
Location  of  Appointive  Power. — In  this  particular  the  pru- 
dence of  the  framers  of  the  Dayton  charter  is  exhibited.  This 
scheme  of  division  of  powers,  set  forth  in  that  charter,  justly 
entitles  it  to  the  claim  of  preeminence  over  all  other  contempo- 
raneous charters.  What  more  in  keeping  with  the  innate  justice 
and  business  like  spirit  which  pervades  the  new  order  than  to 
hold  the  city  manager  responsible  for  the  complete  execution  of 
the  trust  which  is  devolved  upon  him  as  a  public  servant?  We 
concentrate  the  power  in  him  and  we  look  to  him  to  justify 
our  confidence.  Yet  this  very  .spirit  of  righteous  justification 
would  be  a  mockery  of  itself  if  we  did  not  put  it  in  the  power 


OF   GOVERNMENT  n 

of  the  man  to  whom  we  apply  such  an  acid  task  to  discharge  ably 
the  tasks  he  assumes.  The  means  of  discharging  the  trust  must 
lie  in  the  personnel  of  the  departments  over  which  he  exercises 
so  radical  a  control.  The  Dayton  charter,  therefore,  provides 
that  the  city  manager  shall  have  a  very  wide  and  generous  scope 
to  his  appointments.  He  has  absolute  control  over  his  depart- 
ments, and  absolute  power  of  appointment  and  removal,  with  or 
without  cause,  provided  only  that  he  does  not  act  in  conflict 
with  the  civil  service  regulations.  It  is  simply  a  question  of  the 
commercial  world  of  how  to  produce  the  best  results,  and  an 
application  of  the  experience  of  private  enterprises  that  impor- 
tant executives  must  not  be  hampered  in  their  means  of  affecting 
tangible  achievements.  It  is  evident  that  this  must  be  inevitably 
the  order  of  affairs  if  we  expect  the  city  manager  to  write  efii- 
cency  with  a  majuscule. 

Conclusion. — In  this  type  of  officer,  the  personnel  of  the  new 
profession  is  exemplified.  It  is  a  far  cry  from  the  day  of  the 
inefficient  amateur  to  the  precisive  professional  administrator : 
the  annals  of  civic  progress  embrace  many  a  weary  recital  of 
sloth  and  indecision  of  bad  judgment  and  wilful  carelessness. 
This  must  be  no  more.  Sincere  efforts  are  now  under  way  to 
keep  a  clean  record  in  the  future.  Above  all  and  beyond  all,  the 
idea  that  ability  to  direct  a  city's  destiny  is  a  God-given  gift 
common  to  the  politically  chosen  is  meeting  its  Nemesis ;  we  are 
living  now  in  a  more  sophisticated  time  when  the  sugar-plums 
of  political  quackery  no  longer  satisfy  the  jaded  popular  taste. 
This  nation-wide  desire  for  knowledge  and  publicity  and  sim- 
plicity is  garnering  its  significant  fruits  of  efficiency,  economy, 
and  centralized  administrative  authority.  We  are  indeed  on  the 
threshold  of  the  dawning  of  a  new  day  for  a  new  profession. 
May  its  history  record  a  generous  fulfillment  of  its  fortuitous 
beginnings. 

THE  THEORY  OF  THE  NEW  CONTROLLED 
EXECUTIVE  PLAN^ 

The  recent  adoption  by  Sumter,  S.  C.,  of  a  new  type  of  com- 
mission plan  of  government  with  the  appointive  city  manager, 
is  important.  It  is  the  first  time  in  the  United  States  that  a 
municipal   chief   executive   has   been    made    appointive    and   put 

*  By  Richard  S.  Childs,  Secretary,  National  Short  Ballot  Organization. 
National  Municipal  Review.  2:  76-81.  January,  1913. 


78  CITY  MANAGER  PLAN 

under  continuous  control  instead  o£  independent  and  under 
intermittent   control. 

Pending  the  appearance  in  America  of  this  principle,  the  shor^ 
ballot  movement  was  headed  for  a  stone  wall.  For  in  demand- 
ing the  reduction  of  the  mischievous  multiplicity  of  elective 
offices,  we  are  met  by  the  question  "what  offices  would  you  make 
appointive  and  who  would  appoint  them?"  The  natural  and  easy 
answer  is  to  follow  the  tendency  of  the  times  and  advocate 
casting  all  appointive  power  on  the  nearest  chief  executive.  In 
New  York  state,  for  example,  the  New  York  Short  Ballot  Or- 
ganization has  presented  constitutional  amendments  to  the  legis- 
lature, the  effect  of  which  is  to  give  the  governor  control  by 
appointment  over  the  rest  of  the  state  ticket,  namely,  the  secre- 
tary of  state,  state  treasurer,  attorney  general,  comptroller  and 
state  engineer  and  surveyor.  It  is  easy  to  point  to  the  parallel 
of  the  United  States  government  for  justification,  or  to  the  state 
of  New  Jersey. 

The  matter  of  safeguards  on  the  appointing  power  is  brought 
up.  The  politician  takes  it  for  granted  that  the  state  senate  will 
have  power  to  confirm  or  reject  the  appointments  of  the  gov- 
ernor. The  New  York  amendment,  however,  recognized  the  fact 
that  the  senate  habitually  utilizes  the  power  of  confirmation  to 
accomplish  a  theft  of  the  whole  power  of  appointment.  Forthwith, 
the  responsibility  of  the  governor  for  the  appointments  becomes 
something  of  a  myth,  and  public  control  is  baffled  by  the  inability 
of  the  people  to  know  whether  it  was  the  governor  who  made  a 
given  appointment,  or  some  senator.  For  while  the  number  of 
rejections  by  a  senate  may  apparently  not  be  large,  the  real 
number  of  rejections  is  very  large  indeed.  The  governor  may 
not  even  informally  ask  the  senators,  or  the  boss  who  rules  them, 
if  this  or  that  nomination  will  be  acceptable,  knowing  well  the 
limitations  which  the  politicians  will  set  upon  him. 

The  history  of  the  president's  appointive  power  and  its  con- 
striction by  "senatorial  courtesy"  shows  evils  similars  to  those  in 
New  York  state. 

Likewise,  in  cities  where  the  council  must  confirm  the  ap- 
pointments of  the  mayor,  an  interchange  of  authority  occurs  and 
the  council  soon  controls  the  patronage  without  the  correspond- 
ing responsibility. 

With  such  cases  in  mind,  the  New  York  Short  Ballot  Organi- 
zation drafted  its  amendment  so  as  to  give  the  governor  power 


OF   GOVERNMENT  79 

to  appoint  these  minor  state  oflficers,  without  confirmation,  and 
with  power  to  dismiss  at  pleasure.  The  amendment,  consistent 
with  this  principle,  went  beyond  the  offices  which  are  now  elec- 
tive and  made  the  governor's  power  of  unconfirmed  appointment 
complete  throughout  the  whole  administration,  so  far  as  the 
constitution  was  concerned. 

The  mayor  of  New  York  City  has  similar  power  over  all  the 
department  heads.  He  may  appoint  and  remove  without  over- 
sight by  anybody,  and  this  is  considered  one  of  the  most  modern 
and  progressive  features  of  the  charter. 

The  National  Municipal  League's  model  charter  conferred 
this  absolute  power  on  the  mayor. 

This  is  the  present  orthodox  principle  among  reformers.  The 
purpose  is  to  clear  the  lines  of  responsibility  from  all  entagle- 
ments;  to  make  it  impossible  for  an  official  charged  with  neglect 
to  say  that  it  is  at  least  better  and  safer  than  the  confirmation 
instead  of  many-headed. 

The  opposition  promptly  complains  that  this  is  over-concen- 
tration of  power.  The  politicians,  fearful  of  the  appearance  of 
any  machine  except  their  own,  argue  that  the  chief  executive 
would  use  his  enlarged  patronage  to  build  up  a  new  machine. 
Of  course,  we  answer  that  a  new  machine  once  in  a  while  by 
way  of  variety,  might  be  a  good  thing  and  that  we  would  have 
the  boss  of  the  new  machine  right  where  we  could  hit  him  full 
and  square. 

Nevertheless,  it  is  my  belief  that  there  is  a  measure  of  sound- 
ness in  the  opposition  to  uncontrolled  appointive  power  that  we 
must  eventually  give  to  the  opponents  of  it  a  better  answer  than 
to  say  that  it  is  at  least  better  and  safer  than  the  confirmation 
plan. 

In  no  other  democratic  country  do  the  people  subject  them- 
selves so  to  the  mercies  of  individual  caprice  as  we  already  do. 
And,  as  I  have  shown,  reformers  are  ready  to  carry  it  still 
further.  In  many  of  our  cities  it  may  fairly  be  said  that  the 
mayor  holds  half  the  city  power  within  his  personal  grasp. 
Certainly  if  we  take  into  account  his  ability  to  misuse  patronage 
and  veto  like  chessmen,  the  mayor  comes  pretty  near  being  a 
majority  in  many  of  our  city  governments.  In  this  matter  we 
are  unique  among  the  nations,  and  it  is  curious  that  a  country 
which  appears  most  afraid  of  a  strong  government,  and  in  which 
the  Jeffersonian   idea  appears  dominant,   should  be  the  one  in 


8o  CITY   MANAGER  PLAN 

which  single  individuals  are  entrusted  with  greater  uncontrolled 
power  than  anywhere  else  in  Christendom. 

An  instance  of  the  dangers  involved  is  New  York  City 
where  the  mayor  recently  had  it  within  his  power  to  upset  the 
subway  situation  whenever  he  pleased,  and  frequently  it  seemed 
to  the  people  of  the  town  that  he  was  likely  to  do  so.  He  ex- 
pressed opposition  to  what  he  called  "cornfield  routes"  for  sub- 
ways and  wanted  the  new  tubes  built  where  there  was  already 
the  greatest  number  of  passengers.  If  that  one  man  had  hap- 
pened to  be  impervious  to  argument,  future  generations  in  New 
York  City  might  have  been  condemned  to  live  upon  an  insignifi- 
cant fraction  of  the  land  which  lay  within  a  few  miles  of  city 
hall,  with  congestion  piled  on  congestion,  instead  of  congestion 
being  relieved  by  the  opening  up  of  new  spaces. 

Similarly,  the  mayor  of  New  York  was  charged  with  respon- 
sibility for  an  epidemic  of  crime,  by  reason  of  his  causing  sharp 
punishment  of  policemen  who  ventured  to  use  their  clubs.  Mat- 
ters reached  a  point  where  a  gang  of  toughs  could  successfully 
forbid  policemen  to  pass  beyond  the  corner  of  a  certain  carbarn. 

After  the  terrible  Asch  factory  fire  in  New  York,  two  impor- 
tant bills  aiming  at  fire  prevention,  came  before  the  mayor  for 
acceptance.  One  represented  the  best  thought  of  the  public 
spirited  citizens  of  the  town  and  the  most  careful  draftsmanship. 
The  mayor,  without  giving  anybody  a  chance  to  explain,  re- 
jected it  because  he  thought  his  pet  enemy,  Hearst,  had  prepared 
it,  and  proceeded  to  sign  the  inferior  measure. 

Whether  my  statements  are  just  to  the  mayor  or  not,  it  is 
obvious  that  things  fully  as  serious  as  this  are  easily  conceivable, 
and  a  plan  of  government  which  permits  the  whims  or  failings 
of  a  single  man  to  swing  such  vast  interests,  even  temporarily, 
is  not  thoroughly  sound. 

The  chief  ground  for  complaint  against  the  uncontrolled- 
executive  plan  is,  however,  not  its  perilous  strength,  but  the  fact 
that  the  presence  of  these  obvious  perils  compels  us  to  withhold 
from  our  administrators  the  powers  they  need.  They  need  not 
only  complete  undivided  appointive  power,  but  power  to  use  their 
own  discretion,  power  to  make  new  rules,  as  they  go  along,  to 
fit  new  situations,  power  to  be  agents  instead  of  dummies  of  the 
law's  minutiae. 

Our  municipal,  state  and  national  legislatures  now  must 
undertake  to  control  by  continuous  and   detailed  legislation   a 


OF   GOVERNMENT  8x 

multitude  of  highly  technical  matters  which  ought  to  be  left  to 
empowered  administrative  experts.  The  legislatures  cannot 
safely  delegate  their  powers  to  administrators  because  they  can- 
not hold  the  administrators  answerable  for  results  and  subject 
to  punishment. 

The  New  York  city  government  undertakes  to  prevent  such 
holocausts  as  the  Asch  fire.  There  is  a  new  fire  prevention  bu- 
reau, placed  according  to  current  orthodox  theories,  under  the 
mayor's  single  control.  The  fact  that  the  mayor  is  independent 
and  uncontrolled  makes  it  impossible  to  confer  the  vast  neces- 
sary powers  upon  the  fire  prevention  bureau  without  running  the 
risk  that  those  vast  powers  may  be  used  improperly  under  a 
weak  or  opinionated  executive,  in  which  case  there  would  be  no 
appeal  and  all  hope  of  reform  must  be  hazarded  upon  the  per- 
sonality of  the  next  mayor. 

Another  great  and  vital  feature  of  local  legislation  in  New 
York  City  is  the  building  code.  At  present  the  aldermen  make 
it  and  the  mayor  approves  and  administers  it.  The  present 
method  has  developed  great  scandals  and  the  code  is  chronically 
out  of  date  and  unfair  to  business  and  costly  to  the  people.  The 
right  method  would  be  to  have  an  appointive  administrative 
building  code  board,  served  by  an  expert  bureau  and  empowered 
to  enact  the  code  and  keep  it  up  to  date  and  enforce  it.  If 
we  attempt  this  at  present  we  have  three  unhappy  alternatives : 
(i)  To  let  the  mayor  have  the  whole  responsibility  for  the 
building  code  board  with  right  to  dismiss  the  members  and  ap- 
point new  ones  at  pleasure.  This  overstrains  our  willingness  to 
depend  on  the  wisdom  of  one  man.  (2)  To  let  the  mayor  ap- 
point, subject  to  confirmation  by  the  council.  This  forks  the 
line  of  responsibility  and  the  principle  has  proven  mischievous  in 
practice.  (3)  To  let  the  mayor  appoint  the  building  code  board 
but  give  the  members  long  terms  in  rotation  so  that  no  one  may 
or  can  alter  a  majority  of  the  board  in  his  term.  This  puts 
power  beyond  prompt  popular  control,  prevents  the  retrieving  of 
mistakes  in  appointment,  and  delays  and  baffles  attempts  at  im- 
provement as  well  as  attempts  at  corruption.  Thus  Governor 
Wilson  has  been  almost  impotent  in  certain  important  matters 
which  he  was  elected  to  carry  through  in  New  Jersey,  because 
certain  of  his  so-called  subordinates  have  protected  tenures  and 
silently  defy  his  efforts  to  install  new  methods.  The  people  can- 
not be  expected  to  analyze  his  excuses  and  duly  hold  him  blame- 


82  CITY   MANAGER   PLAN 

less.  He  has  no  redress  and  neither  have  the  people  and  there  is 
nothing  to  do  but  wait  for  the  years  to  roll  round  before  reform 
can  be  effected.  Power  ought  not  thus  to  be  delegated  beyond 
control  of  responsible  representatives  of  the  people. 

The  recall  puts  a  touch  of  flexibiUty  into  the  plan  of  electing 
independent  chief  executives.  So  far  as  the  recall  goes,  I  favor 
it.  But  it  is  at  best,  clumsy,  unwieldy  and  expensive.  The  horse 
needs  a  hand  on  the  rein.  It  is  not  always  wise  to  give  him  his 
head  and  then  unhitch  him  and  buy  another  horse  if  he  turns 
off  the  road  to  nibble  the  grass. 

Upon  a  state  legislature  or  a  city  legislature,  i.e.,  a  group  of 
men  who  act  in  group,  we  willingly  confer  greater  powers  than 
we  dare  give  one  man,  and  all  these  large  powers  can,  without 
diminution,  be  boldly  and  flexibly  administered  through  a  con- 
trolled chief  executive. 

Such  is  the  new  office  which  has  just  been  created  in  Sumter, 
S.  C.  The  new  charter  of  this  little  city  (io,coo  population) 
modifies  the  commission  plan  by  making  the  commissioners  act 
as  a  board,  never  singly,  and  perform  all  executive  work  through 
an  appointive  city  manager,  who  holds  office  subject  to  their 
pleasure.  The  city  manager  may  be  hired  from  out  of  town  and 
is  simply  the  expert  servant  of  the  commission. 

Suppose  New  York  adopted  this  plan  by  enlarging  its  present 
board  of  estimate  and  making  it  a  supreme  board  of  directors 
with  no  other  elective  officers  to  detract  from  its  authority. 
That  board  of  directors  could  hire  a  chief  executive  to  carry  out 
all  its  orders  in  proper  co-ordination.  There  could  be  under  this 
continuously  controlled  executive  a  building  code  board  and  a 
fire  prevention  board,  for  instance,  to  which  could  be  safely  sub- 
let all  the  powers  necessary  to  the  proper  regulation  of  build- 
ings and  the  prevention  of  conflagrations.  Then  the  public  would 
have  the  right  to  disregard  all  details  and  simply  hold  the  direc- 
tors responsible  for  results. 

After  the  Asch  fire  nobody  suffered  politically  except  George 
McAneny,  the  borough  president,  and  he  was  not  responsible  at 
all.  But  if  a  building  burned  and  people  died  in  it  the  public 
could  with  perfect  justice  demand  of  our  proposed  board  of  di- 
rectors— "What  did  you  let  this  happen  for?  You  had  plenty  of 
power  to  prevent  it !"  And  the  directors,  apologizing,  would 
turn  privately  to  their  city  manager  and  repeat  "What  is  the 
reason?     Did  you  appoint  real  experts  or  amateurs  on  that  fire 


OF    GOVERNMENT  83 

prevention  board?  Didn't  you  have  inspectors  enough?  Or 
money  enough?  What  do  you  need  to  prevent  another  fire?" 
And  the  manager,  fearing  lest  he  lose  his  job  for  having  thus 
gotten  his  superiors  into  trouble,  will  tear  things  loose  in  the 
fire  board  to  locate  and  punish  the  cause  of  the  inefficiency  and 
see  that  proper  new  provisions  are  made  to  prevent  forever  the 
repetition  of  any  such  disaster. 

We  cannot  secure  such  a  condition  now  because  we  dare  not 
give  to  an  uncontrolled  executive  such  vast  administrative  dis- 
cretion. 

The  controlled-executive  plan  filters  everything  through  a 
group.  It  reduces  the  personal  equation.  Without  loss  of  ad- 
ministrative unity,  it  abolishes  one-man  power.  A  single  man 
may  have  his  ups  and  downs,  his  freaks  and  fancies,  his  militant 
points  and  his  passive  ones,  his  natural  bents  and  moods,  his 
pet  departments  and  projects.  A  board,  or  commission,  or  coun- 
cil, or  parliament,  has  none  of  these  things — to  a  group  such 
excesses  are  relatively  impossible.  Even  if  all  the  members  were 
cranks,  their  combined  judgment  would  be  reliable — they  would 
neutralize  each  other. 

This  plan  corresponds  to  the  general  manager  under  the  board 
of  directors  in  a  business  corporation.  It  gives  the  stability  of 
the  combined  judgment  of  many  men  on  matter.';  of  policy,  but 
leaves  execution  to  a  single-headed  controlled  executive  estab- 
lishment. 

The  controlled-executive  plan  goes  far  beyond  the  recall  of 
the  mayor.  Its  executive  can  be  bounced  out  of  office  in  less 
time  than  it  takes  to  print  the  blanks  for  a  recall  petition. 

There  are  many  other  weaknesses  of  the  independent  execu' 
tive  plan  of  government,  all  of  which  are  corrected  by  the  con- 
trolled-executive idea.    I  will  simply  name  them. 

1.  The  independence  of  the  executive  destroys  continuity  of 
the  administrative  policy.  One  mayor  is  a  crank  on  finance  and 
taxes,  and  devotes  his  attention  to  improving  those  matters,  to 
the  neglect  of  other  departments  which  do  not  interest  him. 
His  successor  leaves  the  financial  reforms  uncompleted  and  fol- 
lows his  own  hobby  of  parks  and  schools. 

2.  Election  of  administrators  is  unsound  in  principle,  for  the 
choice  of  an  administrator  is  no  more  a  natural  popular  function 
than  the  choice  of  an  engineer  or  a  landscape  architect.     Ad- 


84  CITY    MANAGER   PLAN 

ministration  of  modern  cities  is  an  expert's  job  and  the  best  ex- 
perts are  not  necessarily  good  vote-getters. 

3.  The  independent  executive  constitutes  a  separate  city  gov- 
ernment and  the  attempt  to  compel  him  to  work  in  harmony  with 
the  other  "city  governments"  creates  a  costly  and  cumbersome 
mass  of  red  tape.  The  council,  for  instance,  in  appropriating 
funds  for  the  mayor  to  spend,  will  try  to  regulate  the  details 
of  the  expenditure,  thus  perhaps  compelling  what  later  in  the 
course  of  the  expenditure  may  be  found  to  be  extravagance  or 
unwise  economies  or  misdirected  work. 

4.  The  independence  of  the  executive  destroys  unity  in  the 
government.  A  city  ought  to  have  one  government,  not  several. 
Pulling  and  hauling,  deadlocks,  friction  and  delays,  trading  of 
influence  and  the  need  of  a  boss  to  hold  the  ramshackle  to- 
gether and  make  it  progress — all  result  from  two-headed  govern- 
ment. 

Putting  a  chief  executive  under  continuous  control  of  a  re- 
sponsible group  of  men  aboUshes  these  evils.  A  moment's  re- 
flection will  show  that  it  is  the  universal  plan  in  corporations 
and  in  all  associations  employing  paid  servants.  It  is  likewise 
a  standard  plan  in  governments  outside  of  the  United  States. 

In  foreign  countries  the  parliament  elects  and  controls  the 
prime  minister,  who  in  turn  controls  the  administration.  The 
magistrat  of  a  German  city,  with  general  power  of  appointment 
over  the  whole  administration,  is  hired  by  the  council  and  sub' 
ject  to  continuous  control  by  it. 

I  believe  the  best  way  to  go  about  getting  this  idea  into  prac- 
tice is  by  giving  encouragement  to  the  wide  spread  adoption  of 
the  Sumter  plan.  This  plan,  if  successful  in  cities,  will  in  time, 
spread  to  counties  and  even  to  states. 

PROFESSIONAL    STANDARDS    AND    PROFES- 
SIONAL ETHICS  IN  THE  NEW  PROFESSION 
OF  CITY  MANAGER' 

Professional  Standards 
The  first  question  before  the  house  is,  "What  is  a  city  man- 


ager 


It  is  obvious  that  everybody  who  calls  himself  a  city  manager 

*  By    Richard    S.    Childs,    Henry   M.    Waite    and   others.      In    National 
Municipal  Review.   5:195-210.  April,   1916. 


OF  GOVERNMENT  8s 

is  not  necessarily  a  real  one.  It  is  obvious  that  the  title  of  city 
manager  conferred  upon  a  given  office  in  a  city  charter  does  not 
necessarily  make  the  incumbent  really  a  city  manager  or  entitle 
him  to  admission  into  a  scrupulous  city  managers'  association 
as  a  member  of  the  profession  in  full  standing. 

A  certain  city  in  Tennessee,  for  example,  had  an  officer  known 
as  the  city  commissioner,  who  had  considerable  work  to  do  in 
connection  with  public  works.  The  council  passed  a  resolution 
which   ran  substantially  as   follows : 

Whereas  it  is  getting  to  be  the  fashion  for  up  to  date  cities 
to  have  city  managers,  and, 

Whereas   it  will  make City  look  like   an   up   to 

date  city  to  have  a  city  manager, 

Therefore,  be  it  resolved,  that  the  title  of  the  present  com- 
missioner be  changed  to  city  manager. 

To  be  sure  that  officer  had  little  or  no  appointive  power,  was 
completely  excluded  from  some  of  the  most  important  city  de- 
partments, and  despite  his  title,  could  not  in  any  sense  assume 
to  "manage"  the  city,  but  the  council  nevertheless  forwarded  a 
copy  of  the  resolution  to  the  Short  Ballot  Organization  and 
evidently  expected  to  be  listed  thenceforth  among  commission 
manager  cities,  and  no  doubt  the  city  manager  of  that  town 
considers  himself  a  full-fledged  city  manager. 

Titusville,  Pa.,  has  a  so-called  city  manager,  but  he  is  only 
the  manager  of  part  of  the  departments.  The  police  department, 
for  example,  is  not  under  his  charge  at  all.  He  is  in  reality 
simply  a  superintendent  of  public  works.  In  San  Diego,  Cal., 
likewise,  the  powers  of  the  city  manager  and  the  experience  and 
training  which  he  is  getting  are  very  incomplete. 

Another  set  of  cases  is  the  cities  which  have  a  city  manager 
subject  to  divided  responsibility  under  a  mayor  and  council  of 
the  old-fashioned  type.  In  some  cases  the  manager  is  appointed 
by  the  mayor.  Such  a  framework  of  government,  lacking  so 
many  of  the  basic  principles  which  are  essential  to  good  gov- 
ernment in  the  long  run,  is  very  liable  to  get  into  trouble  from 
time  to  time  and  to  give  to  the  true  commission-manager  plan 
and  to  city  managers,  an  undeserved  bad  name. 

Should  not  the  City  Managers'  Association,  anxious  to  es- 
tablish high  and  sound  standards  for  membership  in  the  new 
profession,  exclude  such  managers,  or  set  them  apart  as  being 
not  quite  the   real  thing? 


86  CITY  MANAGER  PLAN 

Again,  what  is  a  "city?"  Shall  the  future  manager  of  Podunk 
(pop.  900)  stand  on  a  professional  parity  with  the  future  city 
manager  of  Boston? 

Here's  another  teaser.  Some  commission  manager  charters 
require  the  manager  to  be  chosen  from  among  local  talent.  This 
provision  denies  the  existence  of  the  profession  and  in  effect 
insists  that  the  manager  must  be  an  amateur.  City  managers 
chosen  under  that  provincial  limitation  will  not  in  the  long  run 
be  an  ornament  to  the  profession.  Shall  such  a  city  be  en- 
couraged to  believe  that  it  has  the  whole  genuine  modern  plan  of 
government? 

The  City  Managers'  Association  has  already  adopted  a  defini- 
tion of  city  manager  and  admits  to  its  membership  "any  one 
who  is  the  administrative  head  of  the  city  appointed  by  its  legis- 
lative body."  At  the  present  stage  of  development  this  rather 
easy-going  definition  is  acceptable,  for  of  course  there  are  so 
few  city  managers  in  the  country  at  present  that  it  would  be 
difficult  otherwise  to  make  up  a  satisfactory  membership  list. 
However,  it  seems  to  me  that  a  stricter  standard  will  eventually 
be  necessary  and  I  offer  the  following  unasked  fatherly  advice 
to  the  city  managers : 

The  association  should  co-operate  in  every  possible  way  to 
insure  the  success  and  fullest  development  of  the  true  commis- 
sion-manager form  of  government.  They  can  do  this  very  effec- 
tively and  inexpensively  by  the  simple  expedient  of  refusing  to 
grant  full  membership  and  full  rights  to  any  city  managers  ex- 
cept those  who  are  really  managing  real  cities  under  charters 
which  give  full  opportunity  for  the  success  of  this  form  of  gov- 
ernment as  well  as  for  the  success  of  city  managers  who  must 
work  there. 

I  suggest  the  following  membership  principles : 

I.  Full  membership :  Any  person  of  good  repute  is  eligible 
for  election  to  full  membership  in  the  City  Managers'  Associa- 
tion who  has  been  for  two  years  an  appointive  chief  executive 
of  a  municipal  government,  under  an  approved  charter. 

An  approved  charter  must  provide  substantially, 

(i)  That  all  the  powers  of  the  city  shall  be  reposed  in  a 
single  elective  governing  body; 

(2)  Said  governing  body  shall  elect  and  direct  the  city 
manager ; 


OF  GOVERNMENT  87 

(3)  The  city  manager  shall  not  be  required  to  be  a  local 
resident  at  the  time  of  his  election; 

(4)  The  city  manager  shall  be  chief  executive  of  the  mu- 
nicipal administration  with  appointive  power  over  all  city  de- 
partments. 

A  member  meeting  the  above  requirements  shall  be  styled 

"Member  of  the  City  Managers'  Association,"  Class  A,  B,  or 
C,  1910  census. 

Class   A,    Managers   of   cities   of    100,000   pop.    and   over 
(50  cities). 

Class    B,    Managers    of    cities    of    30,000   pop.    to    100,000 
(119  cities). 

Class  C,  Managers  of  cities  of  8,000  pop.  to  30,000. 

II.  Associate  membership:  All  other  city  managers  as  per 
the  present  board  definition,  including  the  managers  of  munici- 
palities under  8,000  population,  may  style  themselves  "associate 
members"  of  the  association,  Class  A,  B,  C  or  D,  D  being  the 
division  for  towns  of  less  than  8,000. 

The  two  year  minimum  experience  qualification  shall  be 
waived  until  1920, 

The  influence  of  such  action  on  the  part  of  the  city  man- 
agers would  be  of  incalculable  value  in  keeping  city  charter 
makers  on  the  right  track.  It  may  seem  impossible  that  such  a 
detail  is  capable  of  controlling  the  city  charter  movement  in 
America,  but  it  is.  Even  the  mere  statement  of  the  Short  Ballot 
Organization  that  such-and-such  a  proposed  provision  in  a  city 
charter  would  exclude  the  city  from  our  official  list  of  commis- 
sion-governed or  commission-manager  cities,  is  often  enough  to 
kill  off  undesirable  modifications.  Nothing  is  juicier  meat  for 
the  local  opposition  than  to  be  able  to  say  that  the  writers  of  the 
proposed  charter  have  erred  so  grievously  that  yonder  national 
organization  refuses  to  grant  it  recognition  as  a  commission 
charter  at  all.  To  the  charter  revision  commission  that  ignor- 
antly,  or  for  political  reasons,  attempts  to  emasculate  the  com- 
mission-manager plan,  we  would  like  to  be  able  to  say — "your 
freak  scheme  is  so  unsound  and  so  far  afield  from  the  principles 
of  this  modern  idea  that  your  city  manager  will  not  even  be 
eligible  for  full  membership  in  the  city  managers'  association." 
It  would  work  like  magic ;  and  it  would  do  wonders  to  bulwark 
the  fundamental  necessities  of  the  new  profession. 


88  CITY  MANAGER  PLAN 

To  insist  that  managers  must  have  appointive  power  over  all 
the  administrative  departments  does  not  exclude  managers  in 
cities  where  the  charter  excepts  a  few  odd  minor  officers  from  the 
manager's  control  such  as  corporation  counsel,  city  clerk,  asses- 
sors or  police  judge,  for  these  officers  are  not  necessarily  integral 
parts  of  the  administrative  establishment.  The  provision  does, 
however,  prevent  some  future  city  from  hiring  a  manager  of  ten 
years'  experience  from  another  city  and  finding  that  he  knows 
nothing  of  police  problems.  Such  situations  would  tend  to  bring 
the  professional  managers  into  disrepute. 

Dividing  the  managers  into  classes  looks  far  forward  to  the 
time  when  they  will  naturally  separate  themselves  into  appro- 
priate groups  for  discussing  common  technical  problems.  It 
may  seem  too  early  to  do  this  now.  I  am  afraid  it  is  too  late. 
It  will  require  some  anguish  for  the  manager  of  a  breezy  httle 
western  tank  town  to  say  "aye"  on  a  motion  that  relegates  him 
to  "associate  member  Class  D,"  for  the  good  of  the  profession! 

To  require  that  a  manager  must  be  of  good  personal  repute 
gives  the  association  the  power  to  exclude  or  expel  a  manager 
who  has  been  involved  in  scandal. 

Professional  Ethics 

A  city  manager  who  does  not  frequently  know  better  than 
the  people  of  the  town  or  the  commissioners  what  is  good  for 
them  is  a  pretty  poor  city  manager,  but  the  people  may  not 
want  what  is  good  for  them  and  it  is  not  the  city  manager's 
business  to  jam  it  down  their  throats.  No  doubt  there  are 
towns  where  on  a  clear  cut  referendum  the  electorate  would  be 
likely  to  vote  that  all  administrative  offices,  large  or  small,  must 
be  held  by  Republicans.  The  city  manager  knows  better,  but 
should  he  appoint  a  Democrat?  How  is  he  to  determine  whether 
or  not  he  may  venture  to  do  it?  The  charter  provides  a  guide 
for  him.  If  a  certain  five  or  seven  local  citizens  who  have  been 
elected  for  that  very  purpose  of  serving  as  fair  samples  of  the 
ignorance  and  prejudices  of  the  town,  permit  him  to  appoint  a 
Democrat  and  will  take  the  responsibility,  then  and  not  other- 
wise he  may  go  ahead  and  do  so. 

The  city  manager  is  not  called  in  to  reform  the  city — that 
is  the  work  for  its  citizens.  He  is  called  in  to  give  as  good  an 
administration  as  he  can  persuade  the  commission  to  stand  for. 
He  may    yearn  to  go  further,  to  give  them  single  tax,  or  strict 


OF  GOVERNMENT  89 

law  enforcement,  a  closed  and  dry  Sunday,  an  efficient  full  rate 
assessment  system,  a  non-political  set  of  appointments,  a  less 
gaudy  lighting  of  Main  street,  or  a  wholesome  water  supply, 
but  if  he  cannot  make  these  things  seem  worth  while  to  the  com- 
missioners, he  must  stay  his  hand  and  bide  his  time. 

He  is  the  servant  of  the  people  first  and  always,  but  he  has 
no  authority  to  seek  or  interpret  orders  from  the  people  direct — 
only  through  the  commission.  Suppose  in  his  opinion  the  com- 
mission distorts  those  orders  and  instructs  him  to  act  counter 
to  the  popular  wish?  Is  it  his  job  to  obey,  provided  no  moral 
turpitude  or  deception  is  involved? 

Take  the  case  of  R.  C.  Home,  ex-city  manager  of  Beaufort, 
S.  C.  He  had  a  brief  dime-novel  career  there  involving  risk  of 
his  life  and  his  story  of  his  adventures  and  discoveries  in  that 
backward  little  burg  would  make  a  most  enlivening  contribution 
to  the  literature  of  the  commission-manager  movement.  He 
undertook  to  reform  the  town  in  spite  of  the  commissioners. 
Certain  features  of  the  tax  laws  had  never  been  enforced  with 
the  result  that  numerous  property  owners  in  the  town  were, 
technically  at  least,  heavily  in  arrears.  He  took  it  upon  him- 
self to  revive  these  dead  letter  laws  and  made  a  sudden  attack 
upon  the  leading  bank,  the  president  and  cashier  of  which  con- 
stituted two  of  his  three  commissioners,  with  a  policeman,  a 
warrant  and  a  demand  for  $10,000  of  back  taxes.  So  there  was 
a  fight,  a  recall  election  and  a  political  upheaval  in  which  he 
became  the  popular  leader  of  the  so-called  Home  forces.  In- 
cidentally, of  course,  he  lost  his  job  and  was  supplanted  by  an- 
other manager  of  different  disposition. 

Query — Did  Home  do  right? 

I  say  it  was  right  enough  if  he  felt  like  doing  it,  but  quite 
outside  of  his  profession.  If  he  had  been  mayor  of  that  town 
the  whole  fight  would  have  been  within  his  clear  field  of  duty. 
But  he  was  not  mayor — he  was  city  manager.  He  stepped  out 
of  his  profession,  just  as  much  as  did  the  local  physician  and  the 
local  lawyer  who  helped  him.  He  was  frankly  insubordinate. 
He  took  what  was  for  one  in  his  position  a  disorderly  way  to 
rectify  a  wrong.  The  orderly  way  would  have  been  to  present 
a  formal  proposal  to  a  public  meeting  of  the  commission  explain- 
ing openly  and  clearly  the  situation  as  he  saw  it.  The  commis- 
sion would  have  to  find  an  excuse  for  turning  him  down  and 
would  do  so.    The  manager  would  then  have  his  personal  record 


90  CITY  MANAGER  PLAN 

clear.  Unofficially  he  could  privately  call  the  attention  of  some 
o£  the  local  citizens  to  the  incident  and  even  wink  in  doing  so, 
thus  being  personally  disloyal,  but  not  officially  disloyal,  to  the 
commissioners  who  have  no  right  to  expect  him  to  keep  secrets 
for  them.  If  a  newspaper  asks  for  an  interview,  he  may  officially 
restate  the  facts  of  the  case,  offering  no  opinions.  Then  it  is  up 
to  local  citizens  to  start  something.  Such  a  method  is  slower 
and  less  sensational.  In  some  cases  it  would  be  less  efficacious, 
in  others  more  so.  At  any  rate  it  is,  I  think,  the  professional 
way. 

I  am  not  prepared  to  contend  that  Mr.  Home's  spectacular 
raid  into  Beaufort  politics  did  not  do  Beaufort  lots  of  good, 
nor  do  I  contend  that  any  less  spectacular  method  could  have 
succeeded,  I  only  contend  that  it  does  not  furnish  a  sound  pre- 
cedent for  the  profession. 

Here  is  another  case— Phoenix,  Arizona.  Manager  Farrish, 
I  understand,  administered  the  town  according  to  his  ideals 
which  were  stricter  than  those  of  the  commissioners.  He  de- 
manded efficiency  and  economy  of  his  subordinates  and  removed 
some  politicians  from  the  city  service.  The  commission  said 
"have  a  heart,"  but  he  kept  going.  He  lost  his  job  and  the  town 
was  much  wrought  up  about  it  for  a  time. 

My  theory  of  what  should  have  been  done  in  this  case  is  this : 
When  Manager  Farrish  had  been  given  reason  to  think  that  his 
energy  in  kicking  out  politicians  from  the  municipal  service  was 
distasteful  to  his  superiors,  he  should  have  brought  up  the  next 
case  at  the  next  public  commission  meeting  saying  "Mr.  John 
Republican,  superintendent  of  the  water  works,  does  not  report 
for  duty  on  Mondays,  takes  a  great  deal  of  time  off  during  the 
week,  neglects  his  inspection  of  the  reservoirs,  and  continued 
admonition  has  been  ineffective.  I  feel  that  the  good  of  the  ser- 
vice requires  his  removal  and  unless  the  commission  objects,  I 
will  put  in  a  new  man  there." 

That  brings  it  out  in  the  open.  If  the  commission  wants  to 
take  the  responsibility  of  standing  up  for  Mr.  John  Republican, 
let  it  do  so.  It  is  the  best  judge  of  what  the  people  of  the  town 
will  like.  If  the  commission  openly  insists  on  "having  a  heart," 
it  is  quite  likely  that  the  people  in  the  town  who  consider  such 
a  thing  outrageous  will  be  found  to  be  a  minority.  The  manager, 
of  course,  could  have  simply  removed  John  Republican,  know- 
ing that  it  would  make  the  commissioners  mad  even  if  they  did 


OF  GOVERNMENT  91 

not  dare  say  anything  publicly  about  it — I  take  it  that  that  is 
about  what  Farrish  did  do — but  thereby  the  manager  exceeds  his 
true  function.  It  may  be  very  possible  that  the  people,  like  the 
commissioners,  are  more  interested  in  the  sad  fate  of  bibulous, 
glad-handed  John  Republican  out  of  a  good  job  with  six  pretty 
children  dependent  upon  him,  than  in  the  dainty  curved  line  with 
which  the  manager  indicates  the  decreased  cost  per  thousand 
gallons  of  water. 

It  is  not  the  city  manager's  function  to  govern,  but  only  to 
administer.  The  occasional  manager  who  favors  fixed  definite 
tenure  and  power  to  defy  the  commission  fails  to  comprehend 
the  higher  aspects  of  his  job.  It  is  not  his  function  to  blow  into 
town  and  immediately  implant  in  city  hall  all  the  ideals  of  the 
bureau  of  municipal  research  from  which  he  graduated.  Friends 
of  this  plan  of  government  often  seem  to  expect  exactly  that. 
His  function  is  only  to  give  as  good  an  administration  as  the 
commission  will  take  responsibility  for.  In  a  town  that  elects 
a  machine-controlled  bunch  of  political  puppets,  the  manager 
must  go  slow  and  cautiously  and  be  content  with  getting  ready 
to  do  very  much  better  as  soon  as  the  town  is  in  a  mood  to  elect 
a  better  commission. 

Good  government  that  comes  to  a  town,  unasked  and  unwel- 
comed,  will  be  unstable  and  transitory.  Reform  that  endures 
must  be  built  up  laboriously,  piece  by  piece,  upon  a  firm  basis  of 
popular  sympathy  and  consent. 

An  Answer  to  Mr.  Child's  Paper'- 

It  is  necessary  to  accept  the  first  part  of  Mr.  Childs'  paper  as 
a  criticism.  Before  criticism  can  be  considered  constructive, 
certain  principles  must  first  be  established.  Failing  to  observe 
any  principles  established  as  to  standards  and  ethics  in  the  city 
manager  profession,  I  take  the  liberty  of  setting  forth  a  few 
which  are  generally  accepted. 

The  city  manager  form  of  municipal  government  is  con- 
sidered the  nearest  approach  to  the  ideal  form  yet  established. 
We  can  well  afford  to  establish  this  principle,  as  the  most  ideal 
organization.  The  National  Municipal  League  is  writing  a 
charter  on  that  basis. 

It  will  be  agreed  that  cities  will  be  governed  precisely  as 
well  as  the  citizens  deserve  and  desire ;  that  successful  govern- 

1  By  Henry  M.  Waite. 


02  CITY  MANAGER  PLAN 

ment  must  have  the  continued  support  of  the  majority  of  the 
citizenship;  that  the  large  majority  of  the  citizenship  must  elim- 
inate partisan  politics  from  municipal  affairs ;  that  there  must 
be  a  clear  line  of  demarcation  between  legislative  and  adminis- 
trative authority;  that  good  government  can  advance  and  im- 
prove only  so  far  as  the  majority  of  the  citizenship  is  able  to 
appreciate  and  understand  it. 

Therefore,  the  ideal  government  can  be  approached  as  nearly 
as  the  majority  of  the  people  are  able  to  appreciate  and  under- 
stand it. 

There  are  various  grades  of  city  managers,  as  there  are  vari- 
ous grades  of  theorists.  This  will  always  be  true.  Much  that 
can  be  said  in  a  sarcastic  vein  will  lead  away  a  great  many 
people  from  the  real  issues,  and  is  dangerous.  The  city  managers 
have  adopted  a  definition,  which,  for  the  present,  meets  all  neces- 
sary requirements :  "Any  person  who  is,  or  has  been,  the  admin- 
istrative head  of  a  municipality,  appointed  by  its  legislative  body, 
is  eligible  for  membership."  The  lines  are  broad,  and  must  be 
at  first,  or  there  would  not  be  any  membership  in  the  association. 
Theorists  alone  cannot  establish  successful  results. 

Wonderful  success  is  being  attained  by  city  managers  with 
varying  authorities,  under  varying  charters  and  under  varying 
local  conditions.  The  meeting  on  Tuesday  afternoon  was  given 
up  to  five  minute  talks  and  each  city  manager  gave  the  high 
points  of  his  accomplishments.  The  representatives  were  of 
varying  personalities,  and  have  had  various  experiences  from  en- 
gineers to  county  clerks  and  to  the  president  of  a  baseball  league. 
Yet  every  one  of  them  proved  that  with  an  earnest  desire  to 
accomplish  results,  coupled  with  application  and  sincerity,  all 
reinforced  by  common  horse  sense,  that  they  have  accomplished 
practically  uniform  results.  Any  city  manager,  to  be  a  success, 
must  of  course  use  common  sense  in  his  dealings  both  with  the 
commission  and  with  the  public. 

Mr.  Childs  absolutely  confuses  legislative  and  administrative 
functions  through  his  paper.  The  City  Managers'  Association 
adopted  the  following:  "Communities  that,  for  any  reason,  can- 
not give  broad  authority  to  the  executive  are  not  ready  for  the 
ideal  and  should  accept  a  more  modified  centralized  authority, 
and  not  call  it  a  city  manager  form." 

A  man  accepting  a  position  as  city  manager  must  govern  him- 
self in  accordance  with  the  charter  under  which  he  works. 


OF  GOVERNMENT  93 

If  a  commission  assumes  the  administrative  functions  and 
designates  that  a  certain  man  shall  be  appointed  under  the  ad- 
ministrator, it  becomes  a  question  of  the  personality  of  the  city 
manager  as  to  whether  he  desires  to  retain  the  position  under 
such  circumstances  or  not.  Personally,  I  think  very  few  would; 
I  should  hope  that  none  would.  On  the  other  hand,  those  in  the 
performance  of  the  administrative  functions  of  the  city  should 
not  insist  on  legislative  enactments  over  which  he  has  not,  and 
should  not  have,  any  control  other  than  in  the  way  of  a  sugges- 
tion. City  managers  should  work  with  their  council  or  commis- 
sion the  same  as  an  executive  works  with  his  board  of  directors. 
With  the  right  disposition  on  the  part  of  both  much  can  be  ac- 
complished and  there  is  no  reason  for  a  confusion  of  the  respon- 
sibilities. 

Mr.  Childs  mentions  John  Republican.  If  John  Republican  or 
Bill  Democrat  is  brought  up  between  the  commission  and  the 
administrative  head,  partisan  politics  have  not  been  eliminated 
from  your  city  government,  and  such  a  city  is  not  entitled  to  have 
a  commission  manager  form  of  government,  because  it  has 
demonstrated  that  it  has  accepted  an  ideal  that  is  beyond  the 
understanding  and  appreciation  of  its  citizenship. 

In  any  business  (and  the  same  applies  to  the  commission 
manager  form  of  cities)  when  the  legislative  body  assumes  the 
administrative  duties  over  the  head  of  the  administrator  it  is 
time  for  the  administrator  to  retire — good  business  and  good 
results  demand  it.  Personally,  if  such  a  condition  arose,  as 
used  by  Mr.  Childs  as  an  example,  the  city  manager  of  Dayton 
would  retire. 

A  great  deal  of  the  difficulty  to-day  in  drawing  charters  is 
due  to  the  fact  that  there  has  not  been  an  accepted  form.  The 
National  Municipal  League  is  now  drafting  a  charter  on  the 
city  manager  principle  and  we  would  urge  all  haste  in  getting 
this  out  as  soon  as  possible,  or  in  getting  out  parts  of  it  as  com- 
pleted, as  a  guidance. 

Much  more  can  be  accomplished  in  getting  out  such  a  model 
charter  under  such  auspices  than  by  haranguing  in  meetings  over 
minor  details  that  are  of  no  ultimate  consequence  and  liable 
to  confuse  the  public  mind  as  to  the  success  of  the  principle  of 
city  manager  form  of  government,  and  this  is  particularly  true 
when  such  criticisms  are  promulgated  by  people  who  can  only 
approach  it  from  a  theoretical  side.     It  may  be  true,  at  some 


94  CITY  MANAGER  PLAN 

future  time,  that  it  will  be  advisable  to  divide  the  city  managers' 
association  into  two  classes.  At  the  present  time  we  do  not 
think  that  it  is. 

Mr.  Childs  uses  the  village  Podunk  of  900  population.  Po- 
dunk  managers  (using  the  term  as  I  presume  he  intends  to 
imply  to  the  city  managers  of  the  smaller  communities)  are  ac- 
complishing the  best  results  under  the  greatest  difficulties,  as 
in  Podunk  the  city  manager  is  everything.  The  Podunks  draw 
men  not  having  wide  experience,  and  yet  every  one  of  them  is 
accomplishing  definite  and  progressive  results. 

To  obtain  the  best  results  from  any  association  it  is  necessary 
to  broaden  your  field  as  much  as  possible.  It  would  be  just  as 
fair  to  put  a  limit  on  the  intelligence  and  experience  of  the 
theorists,  who  may  join  the  National  Municipal  League,  as  it 
would  be  to  put  a  limit  on  members  of  the  City  Managers'  Asso- 
ciation. 

The  association  is  for  the  benefit  of  all  of  those  who  are 
struggling  to  make  the  practical  application  of  the  profession 
a  success,  and  it  can  do  the  most  good  by  giving  the  experience 
of  the  larger  communities  to  the  smaller  communities,  and  I 
assure  you  that  we  have  found  in  the  larger  communities  that 
we  have  much  to  learn  from  the  experience  of  the  smaller  com- 
munities. It  is  undoubtedly  true  that  the  city  managers  should 
not  take  their  authority  from  the  people,  only  from  the  com- 
mission. 

As  to  the  personality  of  a  certain  city  manager  which  Mr. 
Childs  has  taken  the  trouble  to  go  into,  I  will  have  nothing  to 
say  as  there  are  those  present  who  are  more  qualified  to  answer 
than  I  am,  as  we  have  one  man  here  who  is  the  successor  of 
Mr.  Home  at  Beaufort.  If  any  community  elects,  as  Mr.  Childs 
suggests,  a  machine  controlled  bunch  of  political  puppets,  I  sin- 
cerely trust  that  such  a  commission  may  not  be  able  to  get  any- 
one to  accept  the  position  of  city  manager. 

The  Discussion 

Mr.  Gaylord  C.  Cummin,  City  Manager  of  Jackson,  Michi- 
gan :  My  views  coincide  entirely  with  those  of  Mr.  Waite.  I 
do  not  see  how  it  is  possible  to  set  up  any  such  standards  as  Mr. 
Childs  has  proposed ;  indeed,  I  cannot  even  sympathize  with  his 
point  of  view  as  to  ethics.  I  think  that  at  least  one  of  the  city 
managers,  whose  course  he  criticized,  did  exactly  right. 


OF  GOVERNMENT  95 

Clinton  Rogers  Woodruff  :  I  have  been  very  much  impressed 
while  I  have  listened  to  the  debates  which  have  been  going  on, 
not  only  in  this  room,  but  in  the  committees  and  in  the  corridors, 
where  some  of  the  most  interesting  discussions  are  had  by  men 
who  are  very  serious  in  their  purpose — I  have  been  impressed 
with  this  thought,  that  the  profession  of  city  manager  is  very 
much  further  along  than  some  of  us  expected,  a  year  ago,  would 
be  possible  at  this  time.  It  is  due  to  the  splendid  work  which 
these  men  have  been  accomplishing  in  the  very  short  time  they 
have  been  at  work,  some  of  them  under  circumstances  discourag- 
ing in  the  extreme. 

I  have  been  impressed  with  another  fact,  and  that  is  the  gen- 
eral good  character  of  the  work.  Here  we  have  two  city  man- 
agers who  have  gone  out  from  Dayton  to  do  effective  work  else- 
where ;  we  also  have  the  secretary  of  the  large  and  effective 
Women's  city  club  of  Cincinnati,  a  product  of  what  I  might 
call,  at  the  risk  of  being  deemed  facetious,  the  Dayton  Univer- 
sity. The  men  who  are  engaged  as  city  managers  to-day  are 
slowly  building  up  standards  for  their  professions.  Those  of  you 
who  are  thinking  of  criticizing  Mr.  Childs'  paper  must  bear  in 
mind  that  the  reply  of  Mr.  Waite  was  almost  equally  facetious. 
Some  of  the  finest  notes  of  this  week  of  conventions  have  been 
struck  by  the  city  managers  who  have  but  recently  come  into  this 
work  of  governing  our  cities,  upon  higher  and  more  ambitious 
lines.  The  note  of  democracy  has  been  struck,  and  with  no  un- 
certain sound,  by  men  who  have  gained  their  inspiration  at  first 
hand,  in  very  difficult  situations.  It  is  no  new  thing  to  hear  that 
note  struck  in  the  National  Municipal  League ;  it  has  been  the 
dominant  note  very  nearly  from  the  beginning,  certainly  from 
the  time  the  League  began  to  find  itself ;  but  it  is  significant 
that  in  the  new  order  of  things  the  city  managers,  fresh  from 
the  difficulties  of  actually  administering  the  affairs  of  American 
cities,  should  feel  the  same  as  men  who  have  been  working  at 
the  problem  for  many  years.  It  may  be  true,  as  Manager  Waite 
has  said,  that  many  of  the  members  of  the  National  Municipal 
League  are  theorists,  but  you  will  find  in  the  personnel  of  this 
organization  a  great  many  men  who  have  done  actual  fighting 
upon  the  firing  line,  under  difficult  circumstances.  It  is  also  a 
significant  thing  that  the  city  managers  have  met  here  in  the 
same  city  with  the  League,  and  that  they  have  approached  this 


96  CITY  MANAGER  PLAN 

problem  from  almost  identical  bases,  and  the  two  are  working 
together  in  a  very  effective  way. 

I  had  hoped  that  we  might  discuss  to-night  with  these  same 
speakers — and  I  trust  that  the  opportunity  will  come  sooner  or 
later,  preferably  sooner — this  question,  "What  should  be  the  con- 
cept of  city  government  in  our  cities?"  For  too  many  of  our 
publicists  and  theorists,  and  even  city  managers  themselves,  feel 
that  when  the  city  manager  is  inaugurated  in  a  city,  that  the 
municipal  problem  is  solved.  We  must  bear  constantly  in  mind 
that  this  is  only  a  good  and  adequate  instrument  with  which  to 
carry  out  the  work  of  governing  cities,  and  the  larger  idea  of 
what  constitutes  the  aim  and  the  end  of  city  government,  what 
problems  are  to  be  solved,  must  still  be  threshed  out  in  organi- 
zations more  or  less  like  the  National  Municipal  League,  even  if 
we  are  theorists,  for  here  is  where  sound  theories  are  needed. 

George  C.  Sikes,  of  Chicago :  I  had  not  intended  to  take 
part  in  this  discussion,  but  I  have  been  moved  by  what  has  been 
said  here,  and  I  think  I  have  had  sufficient  experience  to  en- 
title me  to  speak  upon  this  subject.  For  twenty  years,  I  have 
been  connected  with  civic  organizations  and  with  legislative 
bodies,  and  I  think  I  know  something  about  politics  in  cities ; 
what  can  be  accomplished,  and  what  cannot  be  accomplished.  I 
had  the  privilege  of  looking  over  Mr.  Childs'  paper  before  it 
was  presented,  and  it  struck  me  as  excellent.  I  think  this  is  just 
the  time  to  say  what  he  said.  It  is  a  little  facetious,  to  be  sure, 
but  I  am  surprised  that  the  paper  brought  the  response  that  it 
did.  The  fact  that  it  did  bring  that  response,  is  to  my  mind  the 
indication  that  we  need  this  discussion  right  here  and  now,  and 
we  needed  to  have  these  suggestions  brought  out. 

Mr.  Childs  is  one  of  the  best  friends  of  the  city  manager  sys- 
tem in  the  country.  He  has  done  more  to  help  bring  it  about 
than  any  person  I  know  of.  Now,  Mr.  Childs  wants  to  be  in  a 
position  to  make  the  city  manager  system  go.  He  has  had  some 
experience  in  politics ;  he  knows  what  political  conditions  are, 
and  he  wants  to  get  something  done.  What  does  it  profit  to 
establish  a  fine  system,  if  the  city  manager  system,  after  it  is 
established  throughout  the  country,  fails  to  appeal  to  the  people, 
and  then  goes  down  like  a  lot  of  ten-pins  because  city  managers 
take  positions  which  these  commissioners  cannot  defend  before 
the  people.     If  the  city  managers  are  taking  exception  to  such 


VI  ,*) 


OF  GOVERNMENT  97 

remarks  as  those  of  Mr.  Childs  in  this  place  what  is  going  to 
happen  when  they  get  out  before  the  people? 

Mr.  Waite  spoke  of  Mr.  Childs  as  a  theorist.  He  is  not  a 
theorist  any  more  than  any  of  the  rest  of  us.  We  are  all  the- 
orists, more  or  less,  in  certain  subjects,  and  the  city  managers 
just  as  much  as  anybody  else.  As  engineers  they  are  entitled 
to  the  highest  respect,  but  as  politicians  they  may  still  have 
much  to  learn.  I  lost  a  job  which  I  was  holding  once  in  order 
that  I  might  get  Bion  J.  Arnold  into  ofifice  in  Chicago.  Mr. 
Arnold  was  an  expert  engineer,  but  in  politics  he  is  a  theorist, 
and  had  it  not  been  for  some  of  the  rest  of  us  this  would  have 
gotten  him  into  trouble.  Mr.  Fisher  and  others  who  were  gov- 
ernment experts  worked  with  him  and  kept  things  right.  Mr. 
Waite  is  handling  the  affairs  of  Dayton  in  an  excellent  way  as 
an  engineer  but,  I  take  it,  he  knows  enough  not  to  mix  politics 
with  engineering,  and  he  lets  the  commissioners  attend  to  their 
part  of  the  job.  A  city  manager  who  cannot  maintain  in  his 
mind  the  proper  concepts  of  his  relations  with  his  commission 
and  with  the  people  must  get  out.  Unless  city  managers  take  the 
proper  view  of  these  things,  five  years  from  now  there  will  not 
be  a  city  manager  left  in  office  in  the  country,  or  those  now  in 
office  will  be  superseded  by  men  who  know  how  to  get  along 
with  their  commissioners.  The  city  manager  should  help  the 
people  get  as  good  government  as  the  commissioners  think  the 
people  will  stand   for. 

Mr.  Cummin:  What  Mr.  Sikes  says  as  to  politics  represents 
Mr.  Waite's  idea  and  my  idea  exactly,  namely,  that  politics 
should  not  enter  into  the  situation  at  all.  If  I  was  ordered  to 
appoint  or  ordered  to  discharge  an  employee  simply  because  of 
his  politics  I  would  have  nothing  further  do  do  with  the  com- 
mission and  would  resign. 

OssiAN  E.  Carr,  City  Manager,  Cadillac,  Mich.:  I  wish  to 
endorse  most  heartily  what  has  been  said  by  Brother  Waite  and 
Brother  Cummin.  I  would  like  to  inquire  just  what  profit  it 
will  be  to  any  municipality  to  change  its  charter  in  order  to 
eliminate  politics,  and  then  to  go  back  into  the  rotten  political 
methods. 

Mr.  Harrison  G.  Otis,  City  Manager  of  Beaufort,  South 
Carolina :  I  am  the  man  from  Podunk.  H  I  may  be  allowed  to 
indulge  in  child's  play  I  should  like  to  take  the  stand  for  the 
small  city  in  the  city  manager  game,  and  particularly  for  that 


98  CITY  MANAGER  PLAN 

small  city  which  is  so  handicapped  by  the  state  in  which  it 
happens  to  lie  as  to  make  it  impossible  for  that  small  city  to 
have  an  approved  commission  manager  charter.  I  am  from  South 
Carolina.  South  Carolina  has  in  its  constitution  a  provision  that 
no  city  officer  shall  hold  a  position  in  the  state  of  South  Caro- 
lina unless  he  has  been  a  citizen  for  at  least  two  years'  residence. 
Where  is  your  professional  city  manager,  then,  if  a  man  cannot 
come  in  from  another  state  and  hold  the  position  of  city  man- 
ager in  the  state  of  South  Carolina?  We  have  to  contend  with 
a  position  of  delegated  powers,  and  if  a  man  can  successfully 
contend  with  such  a  constitution,  and  develop  all  the  gold  that 
may  be  developed  from  a  true  commission  manager  city  and 
to  put  that  city  on  a  business  basis  and  get  it  running  along 
business  lines,  he  is  deserving  of  a  certain  amount  of  credit. 
Now  whether  I  be  in  class  D  of  the  third  division  or  not,  I  main- 
tain that  there  are  more  small  cities  in  this  country  than  there 
are  large,  and  that  the  problem  of  city  government  as  worked 
out  in  the  small  cities  is  a  most  vital  problem. 

I  have  lived  in  New  York,  lived  there  for  several  years,  and 
when  I  suggested  to  my  bureau  of  municipal  research  in  New 
York  last  summer,  that  I  was  going  to  Beaufort,  a  town  of  some 
3,500  people,  I  was  laughed  at,  and  was  told  that  I  could  do  all 
the  work  in  two  or  three  weeks ;  but  I  assure  you  most  sincerely, 
that  the  work  of  remodeling  a  small  city,  putting  that  city  on 
an  up-to-date  business  plan,  in  the  face  of  misunderstanding, 
and  doing  it  so  that  everyone  is  satisfied,  is  "some"  problem. 

The  small  city  is  the  laboratory  for  the  development  of  this 
city  manager  idea,  and  is  not  to  be  overlooked.  The  work  I 
have  had  to  undertake  there  is  work  which  I  could  not  possibly 
have  had  an  opportunity  to  find  out  about  in  any  large  city.  I 
have  had  to  remodel  the  whole  city  government,  recodify  its 
ordinances,  dating  back  two  hundred  years,  although  they  were 
burned  up  during  the  War;  revamp  its  accounting  system,  and 
so  on,  and  I  want  to  remark  that  this  matter  of  revision  of  ac- 
counting system  of  small  cities  is  one  that  has  been  overlooked 
entirely  by  all  theorists  and  a  great  many  practical  men. 

Mr.  Childs  has  brought  out  some  very  good  things  in  his 
paper,  and  I  agree  with  him  most  heartily  as  to  certain  ethical 
points.  The  manager  certainly  is  the  employee  of  the' council.  He 
certainly  should  not  try  to  put  things  across  over  the  head  of  his 
council.     If  the  council  attempts  to  do  things  he  cannot  stand 


OF  GOVERNMENT  99 

for,  instead  of  rearing  up  and  pushing  them  back  the  best  thing 
he  can  do,  it  seems  to  me,  is  to  get  his  councilmen  one  at  a 
time  into  a  corner  and  show  them  what  is  the  right  thing  to  do, 
and  then  get  it  done. 

When  I  went  to  Beaufort,  I  found  the  city  managership  tied 
up  completely  into  a  sort  of  Gordian  knot.  They  had  as  city 
attorney,  a  man  who  was  a  sort  of  antebellum  fossil,  who  main- 
tained that  the  city  manager  should  have  no  power.  We  found 
that  every  department  in  the  city  said  it  was  willing  to  have  a 
city  manager,  but  didn't  want  him  in  its  department.  So  the  city 
manager  was  without  any  power  and  had  no  standing  at  all  as 
an  officer  of  the  town.  Nevertheless,  all  the  power  in  the  city 
was  turned  over  to  me  in  less  than  forty-five  days'  time,  although 
I  came  in  under  hostile  colors  and  found  a  town  split  into  two 
most  hostile  factions  so  that  persons  who  had  been  friends  for 
years  would  not  speak  to  each  other  on  the  street.  It  is  entirely 
because  of  my  experience  in  the  city  manager  game  as  gained 
in  the  theoretical  university  training  at  Michigan,  I  think,  that 
with  this  application  of  diplomacy  and  horse  sense,  to  borrow  an 
expression  from  both  sides  of  the  house,  I  was  able  to  accom- 
plish the  degree  of  success  attained,  and  it  seems  to  me  that  we 
must  apply  the  same  principles  if  the  city  manager  plan  is  to  be 
a  success  anywhere. 

M.  H.  Hardin,  City  Manager,  Amarillo,  Texas :  I  am  the 
man  from  the  water  tank  way  out  West,  Amarillo,  Texas.  I 
fully  agree  with  what  Mr.  Waite  said  in  regard  to  the  duties 
of  the  city  manager  and  his  relations  with  the  commission,  and 
I  want  to  express  my  disagreement  with  Mr.  Childs.  I  enjoyed 
his  paper,  but  I  happen  to  be  a  prime  mover  in  the  organization 
of  the  City  Alanagers'  Association ;  I  sent  out  the  call  for  that 
first  meeting  in  Amarillo,  Texas,  in  1914.  I  realized  that  I 
needed  co-operation,  I  needed  to  get  in  touch  with  other  men 
engaged  in  similar  work,  in  order  that  we  might  compare  our 
experiences,  become  better  acquainted  with  the  situations  we 
might  have  to  meet  in  this  new  profession. 

I  think  that  the  small  city  should  be  recognized  just  as  much 
as  the  large  city,  and  I  fully  agree  with  Mr.  Cummin  that  the 
man  from  the  small  city  is  having  the  greatest  difficulties  by 
reason  of  the  fact  that  he  is  unable  to  employ  high  priced  help, 
and  in  a  great  many  instances  has  to  do  all  kinds  of  engineer- 
ing and   accounting  work.      For  that   reason   a  greater   burden 


100  CITY  MANAGER  PLAN 

falls  on  him.  We  have  to  devise  our  own  system  of  records  and 
accounts  and  to  put  it  in  operation  and  in  a  great  many  instances 
have  to  help  to  do  the  work.  For  that  reason  I  hope  that  the 
small  city  will  always  be  recognized  in  the  City  Managers'  Asso- 
ciation. I  appreciate  the  efforts  that  the  National  Municipal 
League  is  making  to  help  the  city  managers  in  their  work,  and 
I  believe  it  is  their  endeavor  to  help  make  our  work  easier  and 
to  support  the  city  manager  plan  of  municipal  government. 

I  think  that  Mr.  Childs'  statement  was  all  right  at  this  time. 
It  brought  out  some  points  that  otherwise  we  would  not  have 
had,  and  I  appreciated  it.    I  believe  it  will  have  a  good  effect. 

Professor  A.  R.  Hatton  of  Cleveland,  pointed  out  that  politics 
could  not  be  eliminated  from  the  city  government,  if  by  politics 
is  meant  the  agency  by  which  people  of  different  opinions  express 
their  opinions  in  matters  of  government.  He  stated  that  the 
will  of  the  people  must  be  carried  out  by  the  city  manager 
whether  he  believes  in  the  principles  expressed  or  not.  We  shall 
always  have  people  grouping  themselves  along  local  lines,  and 
thus  dividing  into  political  parties;  but  these  need  not  and 
should  not  be  confused  with  division  into  national  parties  upon, 
national  issues. 

Mr.  Foulke  :  I  would  like  to  ask  a  question  of  some  of  the 
managers.  There  is  a  problem  now  up,  suggested  by  the  civil 
service  commissioners,  proposing  a  new  civil  service  law,  and 
I  want  to  see  how  it  would  strike  the  city  managers,  and  how 
it  would  operate  in  manager  governed  cities.  The  proposition 
is  to  appoint  a  state  civil  service  commission,  by  competitive 
methods.  The  governor  is  to  select  a  special  examining  board, 
composed  of  three  persons,  first  a  member  of  some  civil  ser- 
vice commission,  or  examiner  or  secretary  of  a  commission ; 
second,  a  man  who  has  been  for  at  least  two  years  engaged  in 
employing  men  for  some  kind  of  professional  or  technical  ser- 
vice; and  third,  a  judge  of  a  court  of  record.  This  board  is  to 
hold  a  competitive  examination  among  applicants  for  the  position 
of  civil  service  commissioner,  and  is  to  appoint  the  highest 
upon  the  list.  The  man  who  is  so  appointed  is  to  hold  office  by 
an  indeterminate  tenure,  and  can  only  be  removed  upon  charges 
of  misfeasance,  or  gross  negligence,  or  conduct  bringing  scandal 
upon  his  office,  after  trial  before  a  board  composed  of  two  nisi 
prius  judges,  and  a  third  man  appointed  by  these  judges.  This 
state  civil  service  commissioner  is  to  appoint  by  similar  competi- 


OF  GOVERNMENT  loi 

tive  examinations  the  commissioners  for  the  cities,  these  com- 
missioners holding  upon  the  same  tenure,  and  this  state  com- 
missioner is  to  have  entire  charge  practically  of  the  whole  state 
service,  and  the  city  commissioner  practical  charge  of  the  city 
service,  in  the  matter  of  promotions,  transfers,  removals,  etc. 
The  power  that  has  been  exercised  by  the  city  manager  in  the 
right  to  dismiss  subordinates  would  under  this  law  be  changed 
so  that  no  subordinate  could  be  dismissed  except  by  filing  charges 
with  the  city  civil  service  commissioner.  That  commissioner, 
once  appointed  in  this  manner,  is  to  have  the  entire  and  exclu- 
sive control  of  all  the  civil  service  of  the  city. 

HoRNELL  Hart,  Milwaukee:  May  I  ask  also  as  part  of  the 
same  question,  whether  the  city  managers  think  that  civil  ser- 
vice reform  is  necessary  at  all  under  a  city  manager,  properly 
installed? 

Mr.  Waite:  There  must  be  for  some  years  to  come  some 
of  civil  service  protection.  That  protection  should  be  in  the  ap- 
pointing power.  It  is  a  great  help  many  times  in  the  selection  of 
men,  to  have  a  civil  service  board  of  such  character  that  good 
men  can  be  turned  into  the  service.  In  Dayton,  we  have  called 
upon  the  civil  service  board  to  hold  competitive  examinations 
for  positions  which  are  not  inside  the  civil  service  regulations 
at  all. 

But  if  you  are  going  to  look  to  an  executive  for  results,  he 
must  have  and  should  have  the  power  of  dismissal.  You  can 
strengthen  the  power  of  your  government  by  giving  this  authority 
to  an  executive,  who  is  building  on  a  basis  of  efficiency  and  who 
stands  on  a  record  of  efficiency.  To  curtail  an  executive  in  his 
management  of  the  affairs  of  the  city,  by  saying  to  him  that  he 
cannot  dismiss  his  subordinates  absolutely,  is  the  beginning  of 
the  end  of  efficiency  in  that  organization. 

I  cannot  see  how  any  man  could  tie  himself  up  to  an  organi- 
zation over  which  he  had  no  control,  so  that  he  might  not  say 
to  a  man,  regardless  of  how  insubordinate  he  may  be,  how  ineffi- 
cient, that  he  would  have  to  leave  the  service.  You  are  not 
giving  your  executive  an  opportunity  to  carry  on  the  affairs  of 
the  government  in  an  efficient  manner,  and  you  cannot  get  effi- 
ciency if  you  do  not  have  control  of  your  organization. 

Mr.  Cummin  :  I  can  strengthen  what  has  been  said  by  Mr. 
Waite,  by  calling  attention  to  one  easily  conceived  condition 
which  might  arise  when  the  power  of  dismissal  is  withheld,  for 


102  CITY  MANAGER  PLAN 

that  is  what  it  practically  means  i£  you  are  obliged  to  get  a 
hearing  before  a  civil  service  commission  on  charges.  Anyone 
who  has  ever  handled  bodies  of  men  knows  that  the  most  dan- 
gerous man  in  an  organization  is  very  often  the  man  who  is  not 
frankly  insubordinate,  who  is  not  inefficient  in  the  way  that  you 
can  put  3'our  finger  on  him,  yet  he  is  absolutely  dangerous  in 
small  things,  for  in  ways  that  you  cannot  definitely  locate  he  is 
disrupting  your  organization.  It  is  worse  than  if  you  had  a  most 
inefficient  man,  because  you  can  take  such  a  man  before  the 
Civil  Service  Commission  and  show  that  he  is  insubordinate  or 
inefficient  or  anything  else.  I  do  not  see  how  you  can  get 
efficiency  unless  the  power  of  dismissal  is  left  with  the  executive. 

As  far  as  the  other  question  is  concerned,  the  more  efficient 
the  civil  service  board  is  in  securing  good  men,  I  think  the 
better  the  city  manager  would  be  pleased. 

Mr.  Hardin  :  I  fully  believe  that  every  city  manager  we  now 
have  in  this  country  is  only  too  glad  to  secure  the  very  best  men 
that  can  be  secured,  and  he  is  only  too  anxious  to  get  rid  of 
any  dead  wood  he  may  have  about  his  office  force.  The  wise 
method,  of  course,  of  getting  rid  of  the  man  who  is  useless  is  to 
have  the  power  of  dismissal;  hence,  if  the  manager  is  fully 
satisfied  that  the  person  is  worthy  of  dismissal,  he  should  get 
rid  of  him.  Sometimes  it  is  very  difficult  to  prove  charges.  You 
know,  we  are  very  often  fully  satisfied  that  certain  crimes  have 
been  committed,  and  that  a  certain  individual  has  committed  the 
crime,  and  yet  it  is  extremely  hard  to  make  out  such  a  case  as 
would  convict  that  man.  The  same  condition  will  arise  in  an 
executive  or  administrative  office. 

Mr.  Foulke  :   Mr.  Childs  is  now  entitled  to  the  last  word. 

Mr.  Childs:  When  the  subject  was  originally  selected  for  this 
evening,  another  topic  was  chosen  but  I  thought  I  could  start  a 
much  better  scrap  on  another  subject.  Accordingly,  my  instruc- 
tions were  to  go  ahead  and  get  up  a  dog  fight  if  I  could,  but  I 
did  not  expect  to  be  the  bone ! 

A  great  deal  has  been  said  about  theorists  this  evening.  I  am, 
frankly  and  absolutely,  a  theorist,  and  am  proud  of  it.  You 
know,  the  chief  difference  between  a  theorist  and  a  practical 
man  is  that  the  theorist  knows  just  where  he  wants  to  go,  but  has 
no  facilities  for  getting  there.  The  practical  man  gets  there — 
and  finds  he  is  in  the  wrong  place.  I  suppose  sonle  of  you 
city  managers,  who  have  just  picked  your  way  out  of  the  shell 


OF  GOVERNMENT  103 

and  looked  out  upon  the  world  and  thought  you  discovered 
America,  considered  it  rather  an  assumption  for  me  to  offer  all 
this  practical  fatherly  advice;  but  while  the  number  of  years 
involved  are  few,  I  want  to  have  you  know,  without  seeming 
to  claim  glory,  that  I  was  sawing  wood  on  the  commission  man- 
ager plan  years  before  any  of  you  ever  heard  of  it.  The  first 
city  manager  charter  was  drawn  in  my  office,  under  my  direc- 
tion, and  was  peddled  around  to  various  cities,  and  was  finally 
sold  to  the  Lockport  chamber  of  commerce  and  became  known 
as  the  Lockport  plan  for  a  time.  Some  three  or  four  years  ago, 
at  the  Richmond  meeting,  this  Lockport  plan  was  the  subject  of 
discussion  by  one  of  our  committees.  Then  Sumter,  South  Caro- 
lina, adopted  it,  and  it  become  known  for  a  while  as  the  Sumter 
plan,  but  it  was  nothing  more  than  what  had  been  brought  out 
originally  as  the  Lockport  plan.  Accordingly,  I  hope  I  may  be 
pardoned  if  I  seem  to  act  a  little  bit  like  an  old  hen  with  ducks 
when  I  consider  where  these  plans  are  going  to. 

I  did  not  mean  to  sneer  in  the  least  when  I  talked  about  Po- 
dunk.  The  small  town,  with  a  population  under  8,000,  is  cer- 
tainly important,  for  the  people  who  live  in  those  towns  are  the 
bulk  of  our  population  and  the  hope  of  democracy,  and  in  that 
field  there  lies  probably  a  more  difficult  and  bigger  work  for 
social  service  on  the  part  of  city  managers  than  in  the  larger 
cities.  In  the  big  cities  the  duties  of  the  executives  are  more  or 
less  of  the  corporation  type.  On  the  human  side,  these  smaller 
jobs  are  the  big  jobs,  and  the  suggestion  of  calling  the  men  from 
the  smaller  towns  class  A  and  the  man  from  the  large  cities, 
class  D,  suits  me  perfectly.  I  did  not  mean  to  sneer  at  them. 
If  I  was  so  interpreted  I  am  sorry. 

There  are  a  great  many  people,  and  some  of  them  are  city 
managers,  who  think  that  the  city  manager  ought  to  have  a 
definite  status  and  a  protected  tenure  in  other  ways,  so  that  he 
could,  if  he  wanted  to,  "sass  back"  at  the  commission  over  him. 
I  want  to  say  again  that  such  a  man  has  not  the  proper  concep- 
tion of  his  job.  He  is  not  at  all  in  the  same  position  that  he 
would  be  as  manager  of  a  private  corporation.  He  is  dealing  in 
this  case  with  democracy.  He  is  the  agent  of  a  commission 
which  has  been  chosen  by  the  people,  and  the  very  fact  that 
there  are  conflicts  shows  that  there  are  some  city  managers  who 
do  not  realize  that  they  are  the  agent  of  a  community,  not  of  a 
corporation.    The  manager  should  not  assume  to  set  up  his  own 


104  CITY  MANAGER  PLAN 

standard.  That  is  what  makes  the  job  a  big  job  and  a  useful 
job;  and  I  am  glad  to  see  that  most  of  the  city  managers  see 
that  and  feel  that ;  glad  to  see  that  they  realize  that  democracy 
comes  first,  efficiency  and  economy  second;  that  their  function 
is  to  carry  out  the  popular  will  as  it  is  expressed  to  them,  not 
to  seek  to  oppose  or  to  control  the  current  of  public  opinion. 

Lieut.  Shaw,  Norfolk,  Va. :  I  should  like  to  ask  Mr.  Childs 
this  one  question.  He  spoke  of  those  little  cities  of  8,000  as 
constituting  the  hope  of  democracy.  Is  it  not  the  fact  that  the 
germ  idea  of  the  city  manager  plan  came  from  one  of  those 
little  towns  about  three  years  before  the  Lockport  plan  was 
evolved? 

Mr.  Childs  :  The  idea  of  the  city  manager,  not  the  idea  of 
the   commission   manager  plan,   came   from    Staunton,   Virginia. 

Lieut.  Shaw:  I  merely  wanted  to  get  that  little  act  of  justice 
for  Staunton,  Virginia. 

Mr.  Childs  :  I  was  the  minister  who  performed  the  mar- 
riage ceremony  between  the  city  manager  plan  as  first  thought  of 
in  Staunton,  and  the  commission  plan  in  Des  Moines. 


FIRST  ADVERTISEMENT  FOR  A  CITY 
MANGER,  SUMTER,  S.  C. 

"October  14,  1912. 

"The  City  of  Sumter  hereby  announces  that  applications  will 
be  received  from  now  till  December  the  first  for  the  office  of 
City  Manager  of   Sumter. 

"This  is  a  rapidly  growing  manufacturing  city  of  10,000  popu- 
lation, and  the  applicant  should  be  competent  to  oversee  public 
works,  such  as  paving,  lighting,  water  supply,  etc. 

"An  engineer  of  standing  and  ability  would  be  preferred. 

"State  salary  desired  and  previous  experience  in  municipal 
work. 

"The  City  Manager  will  hold  office  as  long  as  he  gives  satis- 
faction to  the  commission.  He  will  have  complete  administrative 
control  of  the  city,  subject  to  the  approval  of  the  board  of  three 
elected  commissioners. 

"There  will  be  no  politics  in  the  job;  the  work  will  be  purely 
that  of  an  expert. 


OF  GOVERNMENT  105 

"Local  citizenship  is  not  necessary,  although  a  knowledge  of 
local  conditions  and  traditions  will,  of  course,  be  taken  into  con- 
sideration. 

"A  splendid  opportunity  for  the  right  man  to  make  a  record 
m  a  new  and  coming  profession,  as  this  is  the  first  time  that  a 
^permanent  charter  position  of  this  sort  has  been  created  in  the 
United  States." 


THE  FIRST  COUNTY  MANAGER:  A  MODEL 
COUNTY  GOVERNMENT 

On  February  27th  San  Diego  County,  Cal.,  votes  on  a  pro- 
posed new  charter  under  the  home  rule  provision  of  the  Cali- 
fornia constitution,  whereby  counties  are  permitted  to  frame 
4heir  own  form  of  government  just  as  the  cities  do.  It  is  a 
most  original  and  progressive  instrument  and  exceedingly  sound, 
[t  shortens  the  ballot  radically,  eliminating  or  consolidating 
about  a  dozen  technical  offices  that  are  now  elective.  A  board 
of  supervisors  nominated  from  districts  but  elected  at  large  for 
a  term  of  four  jears,  in  rotation  (five  at  one  time  and  four 
others  two  years  later),  is  made  the  governing  body  of  the 
county  with  authority'  to  hire  and  fire  the  county  manager  under 
whom  is  concentrated  the  administrative  business  of  the  county. 
The  sheriff  and  district  attorney  are  the  only  other  elective  offices. 
The  supervisors  receive  their  actual  expenses  but  no  salaries. 
Sweeping  powers  are  granted  to  the  supervisors,  sufficient,  it 
would  seem,  to  eliminate  the  need  for  special  enabling  acts  in 
the  future. 

The  manager,  the  coroner,  county  clerk,  county  counsel,  pub- 
lic defender,  superintendent  of  schools,  treasurer,  etc.,  are  all 
appointed  by  the  board  of  supervisors  from  the  civil  service 
commission's  eligible  lists. 

Certain  consolidations  of  offices  are  interesting.  The  coroner 
is  made  ex-officio  the  public  administrator.  The  assessor  is  ex- 
officio  tax  collector  and  license  collector.  The  county  manager 
is  ex-officio  road  commissioner  and  the  count}^  clerk  is  ex-officio 
registrar  of  voters,  clerk  of  the  board  of  supervisors  and  clerk 
of  the  superior  court. 

*  Reprinted  from   "The   Short  Ballot   Bulletin,"   February,    1917. 


io6  CITY  MANAGER  PLAN 

The  civil  service  commission  is  appointed,  one  member  by  the 
governor,  one  by  a  majority  of  the  judges  of  the  superior  court 
of  the  county  and  one  by  the  board  of  supervisors,  the  terms 
being  six  years,  expiring  in  rotation.  They  are  removable  by 
a  vote  of  seven  supervisors.  Their  support  is  guaranteed  by  a 
specific  tax  and  practically  all  officers  are  put  under  their  juris- 
diction. They  certify  the  pay-roll,  advise  virith  and  assist  the 
supervisors  in  fixing  salary  schedules  and  no  compensation  for 
any  position  under  civil  service  may  be  increased  or  reduced 
without  their  consent.  From  its  own  certified  lists  it  appoints 
the  county  auditor  and  the  county  assessor.  The  manager 
may  remove  any  of  the  appointive  officers  (except  the  auditor 
and  county  counsel)  after  warning  and  subject  to  reversal  by 
the  commission. 

The  auditor  compiles  the  annual  budget  which  goes  to  the 
supervisors  accompanied  by  the  recommendations  of  the  county 
manager,  and  the  board  of  supervisors  may  reduce  items  but 
not  increase  them  beyond  the  manager's  recommendation. 

The  elimination  of  various  township  officers  is  facilitated 
by  the  provision  whereby  the  county  on  request  from  any  of 
the  townships  must  take  over  various  items  of  work  and  per- 
form them  at  cost. 

The  department  of  public  welfare,  doubtless  for  some  special 
local  reason,  is  separately  constituted  altogether,  consisting  of 
seven  members,  two  appointed  by  the  governor,  two  by  the 
court,  and  three,  of  whom  the  county  manager  must  be  one, 
appointed  by  the  board  of  supervisors.  The  countj^  manager  is 
chairman.  The  terms  are  six  years,  in  rotation,  and  a  specific 
tax  of  twenty  cents  per  hundred  dollars  is  provided  for  this 
department's  support.  It  has  charge  of  the  hospital,  the  poor, 
the  indigent  dead,  the  detention  home,  and  probation,  and  it  con- 
stitutes the  board  of  health. 

The  freeholders  have  produced  a  most  interesting  pioneer 
document  and  a  splendid  contribution  to  the  literature  of  county 
government  reform,  regardless  of  whether  it  is  adopted  or  not. 

(This  charter  was  defeated.) 


AFFIRMATIVE  DISCUSSION 

THE  COMING  OF  THE  CITY  MANAGER  PLAN* 

Instead  of  3,894,173  as  in  1911,  commission  government  now 
rules  a  population  of  7,086,225  and  the  number  of  towns  and 
cities  under  this  form  has  increased  from  93  to  300. 

The  Des  Moines  charter  is  still  the  standard. 

Nine  cities  have  followed  the  Grand  Junction  (Colo.)  varia- 
tion which  provides  the  preferential  ballot.  The  device  has 
proven  workable  and  economical  and  the  extension  of  its  use 
deserves  encouragement. 

The  recent  city  manager  variation,  hereinafter  described, 
embodies  the  first  significant  change  in  structure. 

One  much  mooted  question  has  always  been  whether  commis- 
sioners should  be  elected  for  specific  posts  (as  in  Lynn,  Mass.) 
or  on  a  general  ticket  with  power  to  divide  the  departments 
among  themselves  after  election  (as  in  Galveston  and  Des 
Moines).  The  tendency  of  charter  makers  since  191 1  is  toward 
the  Lynn  system.  The  Kansas  law  has  been  amended  after  a 
trial  of  the  Des  Moines  plan  and  the  Lynn  plan  substituted. 

The  argument  for  the  original  general  ticket  plan  is  based  on 
the  grounds  that  the  people  will  in  either  case  elect  on  issues 
of  representation  rather  than  on  issues  of  the  technical  fitness 
of  candidates,  and  that  in  such  case  the  commission  by  intensive 
close-hand  investigation  of  the  experience  and  ability  of  its 
members  can  make  best  use  of  the  material  available.  More- 
over election  to  specific  office  tends  to  create  five  city  govern- 
ments instead  of  one,  diminishes  the  influence  and  control  of  the 
commission  over  its  individual  members  and  thus  interferes  with 
the  "unification  of  powers." 

Advocates  of  the  "specific-office"  plan  point  out  that  candi- 
dates are  entitled  to  know  what  their  positions  will  be  in  the 
government  and  the  voters,  too,  are  entitled  to  know  what  de- 
partment a  given  candidate,  if  successful,  will  direct.  A  candidate 
may  not  desire  to  run  luiless  a  certain  department  is  to  be  his 

*  Report  of  the  National  Municipal  League's  committee  on  the  commis- 
sicn  form  of  government.  The  committee  consists  of  Wiljiam  _  Bennett 
Munro,  Harvard  University;  Charles  A.  Beard,  Columbia  University;  Ern- 
est S.  Bradford,  Washington;  Clinton  Rogers  WoodrufE,  Philadelphia,  aiid 
Richard  S.  Childs,  New  York,  Chairmaq. 


io8  CITY  MANAGER  PLAN 

and  the  voter  may  willingly  vote  for  a  man  as  candidate  for  one 
department  but  not  for  another  department. 

A  majority  of  your  committee  believes  that  neither  solution 
is  as  sound  as  that  offered  by  the  city  manager  plan  in  which  the 
whole  question  disappears  (see  "6"  below). 

The  city  manager  variation 

Definition  of  the  city  manager  plan.  A  single  elective  board 
(commission)  representative,  supervisory  and  legislative  in  func- 
tion, the  members  giving  only  part  time  to  municipal  work  and 
receiving  nominal  salaries  or  none.  An  appointive  chief  execu- 
tive (city  manager)  hired  by  the  board  from  anywhere  in  the 
country  and  holding  office  at  the  pleasure  of  the  board.  The 
manager  appoints  and  controls  the  remaining  city  employees, 
subject  to  adequate  civil  service  provisions. 

History.  The  first  city  manager  charter  was  presented  to 
the  legislature  of  New  York  in  191 1  by  the  Lockport  board  of 
trade  and  widely  commented  upon  as  "the  Lockport  plan."  It 
failed  of  passage  in  the  legislature. 

In  1912  it  was  adopted  by  the  South  Carolina  legislature  in  a 
special  act  for  the  city  of  Sumter  (population  8,109)  and  subse- 
quently adopted  by  that  city,  going  into  effect  January  I,  1913, 
and  thereafter  known  as  the  Sumter  plan. 

In  1913  it  was  adopted  by  Hickory,  N.  C.  (population  3,176), 
and  Morganton,  N.  C.  (population  2,712)  ;  Dayton,  O.  (popula- 
tion 116,577)  ;  Springfield,  O.  (population  46,921)  ;  La  Grande, 
Ore.  (population  4,843)  ;  Phoenix,  Ariz,  (population  11,134)  I 
Morris,  Minn,  (population  1,885).  Adopted  as  one  of  three 
plans  in  a  general  optional  law  by  the  Ohio  legislature,  applicable 
to  any  city. 

It  was  also  submitted,  unsuccessfully,  in  Elyria  and  Youngs- 
town,  O. 

The  Lockport  draft  remains  at  present  the  model  and  the 
Springfield  charter  is  the  best  thus  far  put  into  effect. 

Comments.  The  swift  development  of  popularity  for  the  city 
manager  idea  ensures  a  wide  and  thorough  trial  of  the  plan 
and  its  rapid  spread  may  be  confidently  predicted. 

This  variation  has  both  of  the  great  basic  merits  which  our 
earlier  report  ascribed  to  the  original  commission  plan,  namely, 
the  "unification  of  powers"  and  "the  short  ballot." 

At  this  point  the  committee  divides. 


OF  GOVERNMENT  109 

Majority  report 

Majority  report  as  to  the  city  manager  variation  of  commis- 
sion government  by  Charles  A.  Beard,  CHnton  Rogers  Wood- 
ruflf,  William  Bennett  Munro  and  Richard  S.  Childs. 

The  city  manager  feature  is  a  valuable  addition  to  the  com- 
mission plan,  and  we  recommend  to  charter-makers  serious 
consideration  of  the  inclusion  of  this  feature  in  new  commission 
government  charters.    Its  advantages  are  : 

1.  It  creates  a  single-headed  administrative  establishment 
instead  of  the  five  separate  administrative  establishments  seen  in 
the  Des  Moines  plan.  This  administrative  unity  makes  for  har- 
mony between  municipal  departments  since  all  are  subject  to  a 
common  head. 

2.  The  city  manager  plan  permits  expertness  in  administra- 
tion at  the  point  where  it  is  most  valuable,  namely,  at  the  head. 

3.  It  permits  comparative  permanence  in  the  office  of  the 
chief  executive,  whereas  in  all  plans  involving  elective  execu- 
tives, long  tenures  are  rare. 

a.  This  permanence  tends  to  rid  us  of  amateur  and  transient 
executives  and  to  substitute  experienced  experts. 

b.  This  permanence  gives  to  the  administrative  establishment 
the  superior  stability  and  continuity  of  personnel  and  policies 
which  is  a  necessary  precedent  to  solid  and  enduring  administra- 
tive reforms. 

c.  This  permanence  makes  more  feasible  the  consideration 
and  carrying  out  of  far-sighted  projects  extending  over  long 
terms  of  years. 

d.  This  permanence  makes  it  worth  while  for  the  executives 
to  educate  themselves  seriously  in  municipal  aflrairs,  in  the  assur- 
ance that  such  education  will  be  useful  over  a  long  period  and 
in  more  than  one  city. 

4.  The  city  manager  plan  permits  the  chief  executives  to 
migrate  from  city  to  city,  inasmuch  as  the  city  manager  is  not  to 
be  necessarily  a  resident  of  the  city  at  the  time  of  his  appoint- 
ment, and  thus  an  experienced  man  can  be  summoned  at  ad- 
vanced salary  from  a  similar  post  in  another  city. 

a.  This  exchangeability  opens  up  a  splendid  new  profession, 
that  of  "city  managership." 

b.  This  exchangeability  provides  an  ideal  vehicle  for  the 
interchange  of  experience  among  the  cities. 


no  CITY  MANAGER  PLAN 

5.  The  city  manager  plan,  while  giving  a  single-headed  ad- 
ministration, abolishes  the  one-man  power  seen  in  the  old  mayor- 
and-council  plan.  The  manager  has  no  independence  and  the 
city  need  not  suflFer  from  his  personal  whims,  or  prejudices 
since  he  is  subject  to  instant  correction,  or  even  discharge,  by 
the  commission.  Likewise,  in  the  commission,  each  member's 
individual  whims  or  prejudices  are  safely  submerged  and  aver- 
aged in  the  combined  judgment  of  the  whole  commission,  since 
no  member  exerts  any  authority  in  the  municipal  government 
save  as  one  voting  member  of  the  commission. 

a.  This  abolition  of  one-man  power  makes  safer  the  free- 
handed extension  of  municipal  powers  and  operations  unham- 
pered by  checks  and  balances  and  red  tape. 

h.  More  discretion  can  be  left  to  administrative  officers  to 
establish  rulings  as  they  go  along,  since  they  are  subject  to  con- 
tinuous control  and  the  ultimate-appeal  of  dissatisfied  citizens 
is  to  the  fairness  and  intelligence  of  a  group  (the  commission) 
rather  than  to  a  single  and  possibly  opinionated  man  (an  elective 
mayor).  Inversely,  laws  and  ordinances  can  be  simpler,  thus 
reducing  the  field  of  legal  interpretation  and  bringing  municipal 
business  nearer  to  the  simplicity,  flexibility  and  straightforward- 
ness of  private  business. 

6.  The  city  manager  plan  abandons  all  attempts  to  choose 
administrators  by  popular  election.     This  is  desirable  because : 

a.  It  is  as  difficult  for  the  people  to  gauge  executive  and 
administrative  ability  in  candidates  as  to  estimate  the  profes- 
sional worth  of  engineers  or  attorneys.  As  stated  under  No.  13 
in  our  191 1  report,  such  tasks  are  not  properly  popular  functions. 

h.  By  removing  all  requirements  of  technical  or  adminis- 
trative ability  in  elective  officers,  it  broadens  the  field  of  popular 
choice  and  leaves  the  people  free  to  follow  their  instinct  which 
is  to  choose  candidates  primarily  with  reference  to  their  repre- 
sentative character  only.  Laboring  men,  for  instance,  can  then 
freely  elect  their  own  men  to  the  commission,  and  there  is  no 
requirement  (as  in  the  Des  Moines  charter)  that  these  repre- 
sentatives shall,  despite  their  inexperience  in  managing  large 
aff^airs  be  given  the  active  personal  management  of  a  more  or 
less  technical  municipal  department. 

7.  The  city  manager  plan  leaves  the  lines  of  responsibility 
unmistakably  clear,  avoiding  the  confusion  in  the  Des  Moines 


OF  GOVERNMENT  in 

plan  between  the  responsibility  of  the  individual  commissioners 
and  that  of  the  commission  as  a  whole. 

8.  It  provides  basis  for  better  discipline  and  harmony,  inas- 
much as  the  city  manager  cannot  safely  be  at  odds  with  the 
commission,  as  can  the  Des  Moines  commissioners  in  their 
capacity  as  department  heads,  or  the  mayor  with  the  council  in 
the  mayor-and-council  plan. 

9.  It  is  better  adapted  for  large  cities  than  the  Des  Moines 
plan. 

Large  cities  should  have  more  than  five  members  in  their 
commission  to  avoid  overloading  the  members  with  work  and 
responsibility,  and  to  avoid  conferring  too  much  legislative 
power  per  individual  member. 

Unlike  the  Des  Moines  plan,  the  city  manager  plan  permits 
such  enlarged  commissions,  and  so  opens  the  way  to  the  broader 
and  more  diversified  representation  which  large  cities  need. 

10.  In  very  small  cities,  by  providing  the  services  of  one 
well-paid  manager  instead  of  five  or  three  paid  commissioners, 
it  makes  possible  economy  in  salaries  and  overhead  expenses. 

11.  It  permits  ward  elections  or  proportional  representation 
as  the  Des  Moines  plan  does  not.  One  or  the  other  of  these  is 
likely  to  prove  desirable  in  very  large  cities  to  preserve  a  dis- 
trict size  that  will  not  be  so  big  that  the  cost  and  difficulty  of 
effective  canvassing  will  balk  independent  candidacies,  thereby 
giving  a  monopoly  of  hopeful  nominations  to  permanent  political 
machines  (see  No.  11  in  the  191 1  report.) 

12.  It  creates  positions  (membership  in  the  commission) 
which  should  be  attractive  to  first  class  citzens,  since  the  ser- 
vice offers  opportunities  for  high  usefulness  without  interrup- 
tion of  their  private  careers. 


HOW  THE  COMMISSION-MANAGER  PLAN  I'S 
GETTING  ALONG' 

It  is  getting  along  rather  nicely,  thank  you !  Of  course,  il 
is  a  very  young  thing,  dating  only  from  January,  1913,  when 
Sumter,  S.  C,  first  put  it  into  effect.  In  this  brief  two  years 
and   a  half,   however,    the   commission-manager   plan   has   been 

*  By  Richard  S.  Childs.  In  National  Municipal  Review.  4:  371-82.  July, 
1915. 


112  CITY  MANAGER  PLAN 

taken  up  by  25  cities  and  towns,  and  five  states*  now  have  op- 
tional laws  permitting  their  cities  to  adopt  the  plan  by  a  simple 
formality.  None  of  the  commission-governed  cities,  except  Ama- 
rillo,  have  changed  over  to  the  new  plan  yet ;  but  some  of  them 
are  planning  to  do  so. 

This  represents  very  substantial  material  progress,  and  this 
scheme  of  municipal  government  now  has  an  assured  standing 
before  any  charter  revision  commission.  In  fact  progress  has 
been  so  rapid  that  critics  might  be  moved  to  scoff  at  the  willing- 
ness of  our  cities  to  experiment  with  new  things,  since  there 
has  really  not  been  time  for  the  new  plan  to  demonstrate 
whether  it  is  good  or  bad.  I  suspect  that  the  spread  of  the  plan 
represents  a  new  courage  on  the  part  of  business  men  who 
formerly  have  left  municipal  charters  exclusively  to  the  lawyers ; 
but  who  now  find  that  familiar  principles  of  business  organi- 
zation may  after  all  deserve  a  respectful  reception  in  the  myster- 
ious counsels  of  a  charter  division  committee. 

The  literature  of  the  plan  consists  mainly  of  the  report  of 
the  National  Municipal  League's  committee,  a  close  analysis  of 
the  plan  from  the  standpoint  of  political  science ;  two  pamphlets 
by  the  National  Short  Ballot  Organization,  one  a  popular  ex- 
position to  be  distributed  in  local  campaigns  for  the  adoption  of 
the  plan  and  the  other  a  technical  summary  of  the  charters  for 
the  use  of  charter  commissions ;  and  the  new  book  in  the  Na- 
tional Municipal  League's  series  by  H.  A.  Toulmin,  Jr.,  entitled 
"The  City  Manager,  a  New  Profession."  This  last  is  a  little 
shy  on  perspective  and  a  little  fond  in  its  appreciation,  but,  like 
its  peer,  Hamilton's  "Dethronement  of  the  City  Boss"  which 
played  a  useful  part  in  the  early  days  of  the  commission  move- 
ment, it  comes  promptly,  puts  in  orderly  array  all  the  material 
thus  far  available,  and  makes  good  reading  for  laymen. 

Thus  far  there  is  no  visible  tendency  on  the  part  of  charter 
makers  to  depart  from  the  basic  principles  of  the  original  Lock- 
port  proposal.  The  main  difference  of  opinion  seems  to  be  in 
the  question  of  what  appointments  shall  be  made  by  the  com- 
mission direct  in  addition  to  the  selection  of  the  manager.  The 
coming  model  charter  of  the  National  Municipal  League  ar- 
ranges to  have  the  commission  appoint  the  civil  service  commis- 
sion and  the  auditor,  in  addition  to  the  manager  who  is  to  make 
all  other  appointments.  The  Dayton  charter  adds  the  city  clerk 
to  the  commission's  appointments.     The  Springfield  charter  has 

^Massachusetts,    New  York,   Viririnla,    Ohio   and   Iowa. 


OF  GOVERNMENT  113 

the  commission  appoint  the  manager,  city  solicitor,  city  auditor, 
city  treasurer,  purchasing  agent,  sinking  fund  commissioner  and 
civil  service  commission,  which  obviously  is  going  much  too  far. 

In  various  other  cities  the  assessors,  municipal  judges,  the 
board  of  education,  are,  not  improperly,  appointed  by  the  com- 
mission instead  of  by  the  city  manager.  Several  cities  have  gone 
still  further  and  have  put  the  police  department,  for  instance, 
beyond  the  manager's  authority,  until  the  city  manager  has  be- 
come merely  the  city  engineer  or  superintendent  of  public  works, 
and  accordingly  I  have  excluded  them  from  the  list  of  commis- 
sion-manager cities  altogether,  inasmuch  as  in  such  cities  the 
manager  cannot  manage.  Dayton  is  unorthodox  in  its  civil 
service  provisions  and  has  a  freak  clause  subjecting  the  manager 
to  popular  recall,  thereby  giving  him  two  masters  to  serve,  the 
people  and  the  commissioners.^  Except  in  this  matter  the 
Springfield  charter  may  be  regarded  as  standard.  The  most 
advanced  charters  are  those  of  La  Grande,  Manistee,  Cadillac 
and  Taylor,  which  include  the  important  provision  of  the  pref- 
erential ballot. 

The  position  of  city  manager,  of  course,  is  the  central  feature 
of  the  plan  and  the  ultimate  theory  of  the  scheme  contemplates 
that  he  should  be  an  expert  in  municipal  administration,  selected 
without  reference  to  local  politics,  and  even  imported  from  out 
of  town. 

In  launching  this  plan  of  government  we  all  feared  that  it 
might  be  many  years  before  any  American  town  would  con- 
sent to  having  its  best  paid  office  go  to  any  but  home  talent,  and 
until  this  provincialism  could  be  broken  down,  the  professional 
city  manager,  giving  his  life  to  the  science  of  municipal  admin- 
istration and  advancing  from  the  managership  of  small  cities 
to  larger  ones  at  increases  in  salary,  would  be  impossible.  Hap- 
pily, however,  this  provincialism,  while  it  gives  the  local  poli- 
ticians a  talking  point,  has  proven  to  be  largely  a  bugaboo.  The 
first  thing  Sumter  did  was  to  advertise  for  applications  for  the 
office  of  the  cit)'  manager,  and,  it  hired  one  of  the  men  who 
responded  to  the  proclamation.  Dayton  began  by  offering  the 
job  to  Goethals  at  Panama.  Jackson  w^as  advertising  recently 
by  way  of  a  paragraph  handed  to  the  Associated  Press.  Hickory 
put  a  little  paid  advertisement  in  the  Engineering  News. 

1  See  article  of  L.  D.  Upson  in  April,  19 is,  issue  of  the  National 
Municipal  Review,  p.  266. — Ed. 


114  CITY  MANAGER  PLAN 

Still  more  astonishing,  practically  every  city  has  chosen  the 
manager  from  out  of  town.  Even  Phoenix,  where  the  charter 
requires  the  city  manager  to  be  a  local  resident  at  the  time  of 
his  selection,  chose  an  itinerant  engineer  who  was  temporarily 
living  there  while  engaged  in  a  government  project.  Usually  very 
few  local  men  are  considered.  Indeed,  it  often  happens  that  none 
apply.  In  at  least  one  case  where  a  well-qualified  local  man  was 
available,  the  fact  seemed  to  be  against  him.  Citizens  as  a  rule 
accept  the  idea  of  an  imported  manager  as  a  part  of  the  spirit 
of  the  plan  and  criticism  ceases  on  that  point  after  the  adoption 
of  the  charter. 

The  transferability  of  managers  from  city  to  city  also  is 
already  an  established  fact.  Springfield  hired  the  former  city 
manager  of  Staunton,  Va.  Jackson  offered  its  managership  in 
turn  to  the  managers  of  Dayton,  of  Springfield  and  of  Big 
Rapids,  and  secured  the  latter  at  an  advance  in  salary.  Sher- 
man, Tex.,  has  hired  the  manager  of  River  Forest,  111.,  after  an 
unsuccessful  attempt  to  secure  a  man  who  had  attracted  com- 
mendation as  mayor  of  Paris,  Tex.  The  profession  of  city  man- 
ager is  thus  securely  established  already.  The  American  City 
publishes  monthly  a  very  respectable  little  classified  list  of  ad- 
vertisements of  would-be  city  managers.  The  National  Munici- 
pal League  and  the  Short  Ballot  Organization  both  maintain  an 
informal  roster  of  prospective  city  managers  and  the  University 
of  Texas  announces  the  formation  of  an  embryo  employment 
bureau  for  them.  Three  universities,  California,  Michigan  and 
Texas  have  already  projected  courses  for  training  city  managers 
and  the  young  men  who  are  training  in  the  various  bureaus  of 
municipal  research  have  their  eyes  eagerly  fixed  on  those  posi- 
tions. 

In  December  1914  the  city  managers  had  their  first  annual 
convention  at  Springfield  and  formed  the  City  Alanagers  Asso- 
ciation. 

Only  eight  of  the  seventeen  managers  were  present,  and  so  it 
was  not  very  much  of  a  conveijtion,  but  rather  a  "round  table." 
The  proceedings  have  been  published  in  full.  The  papers  that 
they  read  to  each  other  were  not  very  technical,  with  the  ex- 
ception of  one  on  municipal  accounting,  which  was  submitted  by 
an  outsider.  It  was  clear  that  they  took  their  new  profession 
very  seriously  and  were  proud  of  being  pioneers  in  it.  There 
was  genuine  interchange  of  views,  and  humorous  comparing  of 


OF  GOVERNMENT  115 

their  troubles  in  "herding"  their  commissioners.  A  significant 
touch  is  given  by  the  appearance  of  paid  advertisements  in  the 
published  proceedings,  advertisements  of  asphalt,  motor  trucks, 
steam  rollers,  chemical  engines  and  sweepers.  City  managers, 
who  are  likely  to  spend  their  whole  life  in  municipal  administra- 
tion, are  more  worth  the  attention  of  a  purveyor  of  municipal 
supplies  than  the  transient  old-style  mayors,  and  when  the  City 
Managers  Association  grows  to  a  good  size,  it  is  likely  to 
have  from  this  source  all  the  money  it  can  use  and  the  associa- 
tion accordingly  is  capable  of  becoming  of  immense  moment 
in  municipal  administrative  progress  in  America. 

The  question  of  where  trained  city  managers  could  be  found 
has  been  answered  in  most  cases  by  the  selection  of  an  engineer, 
with  more  or  less  experience  in  municipal  work.  In  small  cities 
this  saves  the  separate  salary  of  a  city  engineer.  This  seems  to 
be  the  natural  solution  because  in  small  cities  there  is  not  enough 
general  administrative  work  to  keep  a  man  busy  unless  he  is  to 
take  intimate  personal  charge  of  public  works.  .  Civil  engineers, 
as  a  rule,  have  knocked  about  the  world  a  good  deal  and  have 
been  forced  to  learn  how  to  get  along  with  people,  while  at  the 
same  time  they  are  trained  in  precision  and  method.  The  pro- 
fession comes  as  near  to  filling  the  bill  as  any,  although,  of 
course,  the  training  is  not  broad  enough  to  be  entirely  satisfac- 
tory and  something  better  must  eventually  be  found.  Even 
Waite  of  Dayton,  for  instance,  who  is  the  ablest  of  all  the  man- 
agers and  able  to  earn  his  $12,500  a  year  elsewhere  than  in  his 
new  profession,  is  by  no  means  at  home  on  matters  outside  of 
engineering  and  freely  admits  that  he  would  have  been  much 
at  sea  many  times  but  for  the  assistance  of  the  local  bureau  of 
municipal  research. 

The  value  of  this  new  style  chief  executive  is  expected  to 
lie  in  the  longer  experience  of  the  manager,  as  compared  with 
the  transitory  chief  executive  of  the  older  plan,  but  of  course 
the  plan  has  not  yet  been  in  operation  long  enough  for  this 
advantage  to  develop  and  there  are  still  many  cities  with  old 
style  mayors  who  have  had  longer  experience  in  municipal  ad- 
minstration  than  any  of  the  city  managers.  I  think  I  can  see, 
however,  a  more  earnest  desire  on  the  part  of  the  managers  to 
educate  themselves.  Certainly  they  all  feel  a  greater  incentive 
and  fondly  hope  that  they  are  in  the  work  of  citj'-managing  for 
life  with  a  long  and  expanding  career  ahead  of  them. 


ii6  CITY  MANAGER  PLAN 

I  should  like  to  be  able  to  prove  also  by  tangible  evidence 
that  the  indefiniteness  of  the  manager's  tenure  and  the  inability 
of  the  rank  and  file  of  the  city  administration  to  look  forward 
to  any  definite  time  when  the  present  manager  and  his  disturbing 
ideas  will  disappear  has  resulted  in  giving  to  the  manager  better 
control  over  the  civil  service  than  an  ordinary  mayor  can  secure. 
Every  new  executive  in  private  business  or  in  public  life  runs 
up  against  a  "System,"  an  instinctive  resistance  on  the  part  of 
his  subordinates  to  new  policies,  and  in  municipal  administra- 
tion the  "System"  is  frequently  much  stronger  than  the  transient 
executive. 

Perhaps  the  washing  of  the  streets  of  Dayton  fits  my  case. 
For  a  long  time  it  had  been  desired  to  wash  the  streets  with 
water,  but  it  required  the  co-operation  of  the  fire  department, 
the  water  department  and  the  public  works  department — and  the 
streets  were  not  washed.  The  new  manager  was  able  to  set  the 
thing  going  at  once. 

Undoubtedly  the  city  managers  work  harder  than  the  average 
mayor  and  get  closer  to  the  details.  In  Manistee,  for  example, 
the  old  government  had  authorized  $80,000  on  a  new  trunk 
sewer;  the  existing  sewer  was  27  years  old  and  was  reported  in 
very  bad  condition.  The  new  city  manager  spent  $1,200  to  clean 
out  the  old  sewer  and  after  the  removal  of  several  tons  of  sand 
and  refuse  it  was  found  to  be  in  perfect  condition — and  the  new 
one  is  not  to  be  built.  A  less  spectacular  case  is  the  incident  of 
the  shovels  in  Sumter.  Some  shovels  were  needed  for  street 
work  and  when  the  requisition  for  the  purchase  came  in  to  the 
city  manager  he  refused  it  and  sent  for  some  idle  .shovels  from 
the  water  department. 

The  easiest  way  to  measure  up  the  relative  efficiency  of  the 
commission  manager  plan  as  compared  with  the  old  government 
is  by  financial  comparison.  In  Dayton  the  total  operating  ex- 
pense in  1914  was  $1,067,062,  an  increase  of  $77,709  over  the 
year  before,  but  the  new  regime  gave  $140,000  worth  of  new 
services,  or  an  improvement  in  efficiency  of  about  6  per  cent 
in  the  first  year,  without  taking  into  consideration  the  fact  that 
the  old  administration  used  a  considerable  part  of  a  flood  pre- 
vention bond  issue  of  $800,000  for  ordinary  operating  expenses 
and  thus  made  an  ostensibly  remarkable  showing.  In  Spring- 
field the  operating  expenses  were  reduced  from  $450,000  in  1913 
to  $400,000  in  1914,  the  first  year  under  the  new  plan.     A  float- 


OF  GOVERNMENT  117 

ing  debt  of  $100,000  was  wiped  out  in  fourteen  months.  Mean- 
while the  town  was  getting  more  service  than  before.  The 
area  cleaned  by  the  street  cleaning  department  was  increased  by 
25  per  cent.  Garbage  collection,  formerly  provided  for  only  a 
small  portion  of  the  city,  was  extended  to  every  house.  The 
valuation  of  increased  services  is  not  available,  but  leaving  them 
out  of  the  calculation,  the  new  regime  is  apparently  about  11 
per  cent  better  than  the  old. 

In  La  Grande,  the  city  manager  found  the  city  bankrupt,  its 
warrants  so  greatly  depreciated  in  value  that  the  banks  were 
refusing  to  take  them  at  any  price.  Outstanding  warrants  had 
reached  $110,000,  slightly  more  than  a  whole  year's  budget.  In 
the  first  year,  $35,000  was  cleared  off  and  another  $35,000  dis- 
appeared during  the  first  four  months  of  1915. 

In  Manistee,  the  1913  budget  was  $104,000.  The  new  regime 
saved  $20,000  of  this  and  at  the  same  time  greatly  increased  the 
city's  service,  including  the  restoration  of  ten  miles  of  paved 
street,  which  were  in  deplorable  condition,  as  well  as  making 
unnecessary  the  $80,000  bond  issue  previously  mentioned  for  the 
new  sewer.  Apparently,  therefore,  the  new  government  in 
Manistee  is  20  per  cent  better. 

In  Taylor,  Tex.,  the  annual  income  was  $49,000  and  in  the 
first  year  and  under  the  new  plan,  with  the  aid  of  less  than  $2,000 
new  tax  revenue,  the  city  manager  wiped  out  a  floating  debt  of 
$9,600,  a  15  per  cent  better  showing. 

Cadillac  cut  $6,000 — 13  per  cent — out  of  the  $47,000  of  annual 
running  expenses  while  improving  the  municipal  service. 

Little  Hickory,  N.  C.,  with  running  expenses  of  $32,000,  cut 
out  $4,400 — 14  per  cent — in  the  first  year  of  the  new  plan, 
squeezed  in  several  thousand  dollars'  worth  of  extra  service  and 
kept  up  the  pace  in  the  second  year. 

Another  little  one,  Morris,  Minn.,  spent  $28,300  in  the  first 
year  of  the  new  plan,  which  was  $3,800  more  than  the  year  be- 
fore, but  the  manager  shows  an  increase  of  $6,000  in  permanent 
improvements  and  $2,500  more  cash  on  hand — a  15  per  cent  ad- 
vance. 

Montrose,  Col.,  reports  that  the  old  accounts  were  so  mean- 
ingless as  to  make  comparison  impossible,  but  the  manager, 
starting  with  smaller  appropriations,  saved  in  the  first  year 
enough  to  reduce  the  tax  levy  18  per  cent. 


ii8  CITY  MANAGER  PLAN 

In  Montrose  the  appropriation  for  1913  was  $43,810  and  for 
1914  $40,130.  But  the  city  did  considerably  more  work  with  the 
latter  sum  and  had  $13,000  more  cash  on  hand  at  the  end  of  the 
year  than  at  the  beginning. 

All  the  cities  seem  to  have  such  stories  to  tell  of  increasing 
service  without  correspondingly  increased  expense,  of  floating 
debts  being  wiped  out,  of  disbursements  kept  with  appropriations, 
of  municipal  accounts  that  tell  the  true  story,  of  thrift  in  little 
matters.  All  the  managers  seem  to  be  keen  to  produce  annual 
reports  that  will  be  creditable  to  the  new  way  of  doing  things. 
Highly  typical  of  the  new  spirit  is  the  failure  to  fill  the  office  of 
director  of  public  safety  at  Dayton  and  Springfield.  It  was  a 
charter  position,  but  not  altogether  necessary,  inasmuch  as  the 
fire  and  police  departments  are  already  well  unified  and  require 
little  overhead  coordination.  How  long  would  such  an  exempt 
position  with  its  good  salary  have  remained  vacant  under  the  old 
regime? 

One  of  the  unsettled  points  has  been  how  to  prevent  the 
commission  from  interfering  unduly  with  the  manager.  The 
commissioners  are  not  always  business  men  and  do  not  always 
know  how  to  delegate  authority  and  keep  their  hands  off.  In 
Port  Arthur,  Ontario,  which  has  had  a  commission-manager 
plan  for  six  years,  the  commission,  which  is  a  large  one,  is  in- 
cessantly interfering  with  the  manager  and  fussing  over  details 
which  ought  to  be  delegated.  In  Sumter  it  was  the  same  way. 
The  commissioners  constantly  went  over  the  head  of  the  first 
manager  and  dealt  directly  with  subordinates,  so  that  the  city 
manager  was  often  merely  a  helpless  spectator.  In  Phoenix  the 
commissioners  attempted  to  dictate  appointments  to  the  city 
manager  and  to  make  him  retain  inefficient  employees  for  polit- 
ical reasons.  The  manager  refused  and  was  removed  after  a  dis- 
agreement which  had  the  whole  town  by  the  ears,  and  another 
man  of  presumably  more  complaisant  temper  was  secured  in  his 
place.  This,  curiously  enough,  was  under  the  one  charter  which 
attempted  to  set  up  defenses  for  the  city  manager,  who  could 
only  be  removed  for  cause  after  a  public  hearing.  (This  made 
the  removal  of  the  manager  a  question  for  the  courts  and  for  a 
time  Phoenix  had  two  city  managers,  each  claiming  exclusive 
authority.  The  Phoenix  charter,  quite  properly,  has  been 
amended  so  that  there  can  never  again  be  a  question  of  the  ability 
of  the  commission  to  discharge  a  city  manager.) 


OF  GOVERNMENT  119 

The  city  managers  are  a  little  inclined  to  talk  impatiently 
about  the  need  for  a  protected  tenure,  but  if  the  commission  is 
to  be  held  responsible  ultimately  for  every  detail  of  the  city 
management,  the  power  to  interfere  must  be  left  to  it.  Un- 
doubtedly city  managers  will  always  be  more  or  less  impatient 
with  the  amateurs  in  the  commission,  who  will  ask  the  impos- 
sible, worry  the  manager  with  petty  criticism  and  harry  him  with 
ridiculous  theories.  Nevertheless  this  clash  of  the  expert  with 
the  amateur  is  just  what  we  want.  If  the  expert  cannot  convert 
a  commission  which  has  had  enough  confidence  in  him  to  hire 
him,  it  is  probable  that  he  would  have  difficulty  also  with  the 
people  whom  that  commission  represents,  and  until  he  can  win 
over  that  commission  he  ought  not  to  be  allowed  to  go  ahead. 

The  commissions  of  Dayton,  Springfield,  and  certain  other 
cities  where  the  majority  of  members  are  business  men,  seem  to 
be  giving  their  city  managers  little  trouble.  Manager  Hardin 
in  Amarillo  says :  "I  am  the  connecting  link  between  the  com- 
mission and  the  employes.  The  commission  has  never  attempted 
to  get  out  and  instruct  anj'^  of  the  employes,  and  the  night  I 
qualified  I  told  the  commission,  'Now  if  you  want  anything  done, 
come  to  the  manager' ;  I  told  the  employees  'if  you  want  to  know 
anything  or  want  to  get  in  touch  with  the  commission,  do  it 
through  me.'  It  will  cost  any  man  his  job  to  go  around  me  and 
try  to  put  anything  over  with  the  commission."  In  the  long  run, 
this  solution,  informal  though  it  is,  is  probably  better  than  any 
charter  restriction. 

When  the  commission  consists,  as  it  often  does,  of  only  five 
men  in  a  fairly  large  city,  there  is  a  certain  inadequacy  on  the 
representative  side  of  the  government.  The  Dayton  commis- 
sioners have  been  pained  to  discover  that  they  have  been  step- 
ping on  the  toes  of  numerous  people  without  knowing  it.  Large 
sections  of  the  people  find  not  a  single  man  on  the  commission 
who  is  of  their  own  type.  Upson  of  Dayton  and  Waite,  the  city 
manager,  are  impressed  with  the  problem  and  suggest  propor- 
tional representation  to  insure  a  proper  diversity  in  the  com- 
mission. 

Meanwhile  much  could  be  done  by  creating  advisory  boards 
attached  to  the  several  departments.  All  the  best  engineering 
talent  that  may  happen  to  reside  in  the  town  could  thus  be  called 
in  to  study  and  report  independently  to  the  manager  and  commis- 
sion on  the  projects  of  the  public  works  department.    The  local 


120  CITY  MANAGER  PLAN 

physicians  could  be  hitched  up  to  the  heahh  department  and  on 
other  boards  could  be  put  citizens  who  manifest  some  interest,  or 
who  have  some  special  abihty  or  experience  to  contribute.  Such 
boards,  acquiring  familiarity  with  departmental  problems,  could 
become  highly  serviceable.  If  the  city  manager  determined  upon 
a  good,  but  unpopular,  policy,  there  would  be  a  dozen  members 
of  the  advisory  board  prepared  to  explain  it  and  justify  it  to 
felloW'  townsmen.  If  the  policy  was  wrong,  the  unwillingness 
of  the  advisory  board  to  concur  would  perhaps  deter  the  man- 
ager and  the  commission  from  embarking  upon  it.  The  advisory 
board's  objections  might  warn  the  manager  when  he  was  un- 
knowingly rubbing  the  people  the  wrong  way.  A  hundred  men 
and  women  on  such  a  group  of  advisory  boards,  having  no 
actual  power  and  hence  not  being  self-seekers,  can  be  developed 
by  considerable  treatment  into  a  co-operative  force  of  great 
value  and  comfort  to  the  officials  without  clogging  the  simple 
machinery  of  the  responsible  government.  In  a  large  city  ad- 
visory boards  could  be  provided  with  paid  secretaries  and  in  any 
case  their  opportunities  for  inquiring  should  be  unrestricted, 
their  equipment  for  investigation  should  be  ample,  their  reports 
should  be  public  records. 

The  dissatisfaction  expressed  in  Dayton  by  the  attempt  to 
amend  the  charter  out  of  all  semblance  to  the  true  commission- 
manager  type  is  merely  a  phenomenon  familiar  in  politics  every- 
where and  akin  to  the  fact  that  the  mid-term  congressional  elec- 
tion usually  runs  against  the  administration.  Cadillac  experi- 
enced a  similar  reaction  in  the  attempt  to  recall  the  commission 
after  six  months.  Numberless  commission-governed  cities  have 
seen  the  new  plan  subject  to  bitter  attacks  during  the  first  years, 
usually  at  the  hands  of  those  whose  political  power  waned  with 
the  coming  of  the  new  era. 

In  Dayton  there  is  extra  danger  in  the  fact  that  the  business 
men  at  the  beginning  had  things  too  wholly  their  own  way  and 
elected  a  handpicked  business  ticket.  Now  business  men  com- 
prise but  a  trifling  percentage  of  the  population  and  live  a  good 
deal  in  a  little  social  world  of  their  own,  and  a  good  many  cur- 
rents of  opinion  can  flow  that  business  men  know  nothing  of. 
The  business  men  supposed  they  had  catered  adequately  to  the 
rest  of  the  people  when  they  thoughtfully  put  a  labor  representa- 
tive on  this  ticket,  but  apparently  that  was  not  enough. '  Any  poli- 
tician in  Dayton  could,  for  instance,  have  warned  them  that  the 


OF  GOVERNMENT  121 

fixing  of  the  city  manager's  salary  at  the  unfamilarly  high  figure 
of  $12,500  would  be  pohtically  risky.  It  seems  Hkely  that  in 
November  Dajton  will  defeat  the  attempt  to  spoil  the  charter 
and  will  put  a  politician  or  two  on  the  commission.  In  general, 
the  cities  that  elect  former  mayors  and  councilmen  to  their 
new  commissions  may  be  making  haste  more  slowly  and  more 
surely. 

Other  phases  of  the  opposition  to  the  commission-manager 
plan  seem  trifling.  The  idea  of  a  chief  executive  from  out  of 
town  seems  to  please  more  people  than  it  disturbs.  They  dub 
it  "one-man  government"  sometimes,  but  even  that  seems  to 
fascinate  and  I  have  heard  it  seriously  urged  that  the  manager 
be  made  independent  and  relieved  from  interference  by  the  com- 
mission. Some  socialists  have  unofficially  opposed  it  with  the 
same  blind  hatred  which  they  are  apt  to  vent  on  anj^thing  that 
originates  elsewhere.  Perhaps  it  was  due  in  part  to  the  incau- 
tion  of  these  same  sapient  business  men  in  Dayton  who  naively 
sent  out  publicity  to  the  effect  that  the  commission  manager  plan 
was  "the  creation  of  Mr.  Patterson,  a  multi-millionaire  manu-' 
facturer." 

Socialists  made  similar  attacks,  officially,  on  the  commission 
plan,  whose  originator  in  Des  Moines  they  discovered  to  be  a 
man  of  some  means  and  therefore  presumbly  an  agent  of  capi- 
talism intent  on  subverting  democracy.  They  tamed  down  and 
withdrew  from  their  position  after  a  while  and  they  are  not 
making  the  same  mistake  again  on  the  commission-manager 
plan.  In  Dayton  they  opposed  the  charter  and  are  now  being 
used  by  the  politicians  who  are  stirring  up  all  the  discontent 
they  can.  In  Sandusky,  Ohio,  however,  it  was  largely  the  social- 
ists who  put  the  charter  through.  Their  own  national  informa- 
tion department,  tackling  the  problem  of  municipal  government 
constructively,  arrived  by  inevitable  logic  at  the  commission- 
manager  principle.  Their  convention  could  not  quite  swallow 
it,  but  the  plan  will  gain  a  few  more  friends  and  become  ortho- 
dox except  that  the  non-partisan  ballot,  wonderfully  helpful 
to  them  though  it  is,  will  doubtless  remain  taboo. 

Our  own  Mr.  Foulke  has  shaken  his  finger  in  solemn  warn- 
ing of  the  danger  that  elections  may  revolve  around  the  question 
of  retaining  or  replacing  the  city  manager.  This  would,  of 
course,  be  quite  out  of  the  spirit  of  the  plan,  but  it  will  un- 
doubtedly occur  from  time  to  time  just  as  it  occurs  in  school 


122  CITY  MANAGER  PLAN 

board  elections  when  the  superintendent  becomes  an  issue.  The 
proper  antidote  is  a  becoming  modesty  on  the  part  of  the  city 
manager.  In  all  dealing  with  the  public  the  commissioners 
should  do  the  talking,  the  explaining  and  the  glorifying.  If  the 
commissioners  hire  a  fine  manager  and  thereby  get  fine  results, 
theirs  is  the  glory;  the  manager  is  only  their  agent  and  private 
adviser.  The  commissioners  ought  to  be  the  ones  to  go  around 
making  speeches;  the  manager  ought  to  be  on  happy  terms  with 
the  reporters,  but  like  the  president,  never  be  personally  quoted 
in  their  despatches.  His  opinions  ought  to  stay  under  his  hat 
except  when  he  is  in  consultation  with  the  commission.  He 
should  never  appear  in  open  conflict  with  the  commission  and 
if  he  does  differ  with  them,  others  must  make  the  fight.  In 
other  words,  he  must  at  all  cost  keep  out  of  politics.  That  means 
crawling  into  a  hole  out  of  the  limelight  and  resolutely  staying 
there,  and  thus  unobtrusively  continuing  manager  through  suc- 
cessive administrations  no  matter  how  various  may  be  the  com- 
missions that  come  and  go  over  his  silent  head.  Manager  Ash- 
burner  of  Springfield,  with  political  experience  as  manager  of 
Staunton,  Va.,  has  kept  pretty  quiet  and  has  now  bought  a  home 
in  Springfield.  Manager  Chappell  of  Big  Rapids  and  Jackson 
does  not  even  burst  into  print  when  the  inexperienced  Jackson 
commissioners  displace  him  in  impatience  with  the  cautiousness 
of  his  innovations.  But  manager  Waite  of  Da3d;on  became  a 
national  figure — and  an  issue  for  next  November's  election ! 
The  Dayton  pamphlet  covering  the  first  half  year  of  the  new 
rule  was  the  "Report  of  the  City  Manager  to  the  Commission" 
with  an  introductory  letter  by  the  city  manager  and  the  names 
of  the  commissioners  nowhere  to  be  seen.  The  second  pamphlet 
six  months  later  was  the  "Report  of  the  City  Commission," 
signed  by  the  commissioners,  beginning  "One  year  ago  we  took 
up  the  reins  of  government"  and  no  mention  of  the  city  manager 
anywhere  !     Apparently  practice  supports  the  theory ! 

With  the  commission  plan  in  small  towns  a  commission  of 
three  was  better  than  one  of  five  because  their  work  was  mainly 
individual  and  executive.  With  the  commission-manager  plan 
there  is  no  advantage  in  making  the  commission  so  very  small. 
The  short  ballot  principle  is  well  enough  observed  with  five, 
or  an  even  larger  board  can  be  provided  if  the  teims  expire  in 
rotation.  The  complaint  comes  from  Sumter  that  the  difficulty 
with  the  commission  of  three  is  the  tendency  to  meet  by  tele- 


OF  GOVERNMENT  123 

phone  or  settle  a  policy  on  the  sidewalk.  Public  business  should 
not  be  handled  in  that  elusive  way.  A  meeting  of  the  commis- 
sion should  be  a  formal  occasion  at  a  set  time  so  that  the  public 
can  look  in  and  interject  comment  if  it  wants  to.  A  Httle  larger 
commission  is  likely  to  meet  with  more  ceremony  and  overhaul 
each  proposition  more  noisily. 

Sherman,  Texas,  varies  the  plan  in  a  way  that  will  be  worth 
copying  when  larger  commissions  begin  to  come  into  vogue,  as 
they  should  and  will.  Sherman  elects  sixteen  commissioners 
with  rotating  tenures  and  the  charter  provides  for  an  executive 
committee  of  three  within  the  commission,  chosen  by  it  and 
holding  office  at  its  pleasure,  to  handle  details  and  to  work  in 
special  intimacy  with  the  manager. 

The  cities  to  watch  just  now  are  Dayton,  where  the  plan  is 
under  attack.  Phoenix,  where  the  commission  has  fired  a  man- 
ager because  he  was  being  a  patronage-broker,  and  Niagara  Falls, 
where  the  managership  is  viewed  by  some  as  a  prize  plum  for 
some  local  politician. 

My  final  note  is  most  significant  of  all.  It  concerns  a  letter 
received  a  while  ago  from  a  California  school  boy.  He  admits 
that  he  has  not  stood  too  high  in  his  studies,  but  he  has  decided 
that  he  could  do  great  good  to  thousands  of  people  as  the  man- 
ager of  some  city,  of  course  a  small  one  at  first,  and  can  I 
please  tell  him  what  and  where  to  read  and  study  as  a  prepara- 
tion? Forsooth!  Municipal  administration  in  America  an  iri- 
descent dream  for  youths ! 


HOW  THE  COMMISSION-MANAGER  PLAN  IS 
GETTING  ALONG* 

In  the  year  and  a  half  that  have  elapsed  since  my  last  article 
on  this  subject,  very  little  of  new  significance  has  happened. 
That  fact  in  itself,  while  uninteresting,  is  rather  important. 
"Happy  is  the  land  that  has  no  history." 

The  situation  continues  to  be  more  than  satisfactory.  The 
commission-manager  plan  is  now  five  years  old.  In  several 
cities  it  has  survived  elections  without  causing  any  earthquakes 

^  By    Richard    S.    Childs,    New   York.      In    National    Municipal    Review. 
6:  69-73.  January,   1917. 


124  CITY  MANAGER  PLAN 

in  the  city  halls.  From  all  the  cities  come  specific  and  circum- 
stantial reports  of  economies  effected,  taxes  reduced,  new  func- 
tions undertaken,  politics  eliminated  and  popular  aproval  made 
manifest.  Some  of  the  older  cities  have  now  reached  that  most 
interesting  stage  where  they  present  the  fruit  of  their  sowing  in 
most  impressive  fashion.  Dayton,  especially,  is  beginning  to 
reveal  what  good  government  really  means.  After  you  have  got 
the  politicians  out  of  the  city  hall,  after  government  ceases  to 
mean  a  parcel  of  jobs  to  be  contested  for,  after  you  have  de- 
veloped a  public  agency  sensitive  to  the  desires  of  the  electorate 
and  at  the  same  time  efficient  and  dean  in  administration;  then 
what?  The  city  having  obtained  at  last  a  first  class  automobile 
instead  of  a  stage-coach,  where  shall  we  drive?  Does  it  mean 
merely  a  lower  tax  rate?  Dayton  is  just  beginning  to  answer 
that  question  by  exhibiting  a  government  which  delights  in 
undertaking  high  social  service.  Here  is  a  city  government  which 
is  beginning  to  undertake  the  responsibility  of  looking  after  the 
people  of  the  city.  It  frankly  and  definitely  proposes  to  abolish 
private  charity  within  the  city  by  gradually  taking  over  every 
tested  and  necessary  philanthropy.  It  tries  to  do  something 
about  the  cost  of  living.  It  reduces  infant  mortality  40  per  cent. 
It  undertakes  to  restore  human  derelicts.  It  develops  wholesome 
occupation  for  children  in  little  faim  gardens.  It  abandons  the 
hisses  faire  policy  and  assumes  responsibility  for  trying  to  make 
Dayton  a  nice  place  to  live  in.  German  cities  look  after  their 
citizens  in  this  way  to  conserve  the  national  sinew.  The  job- 
holders in  a  typical  American  city  hall  have  no  such  vision. 
Dayton  seems  likely  to  show  how  much,  in  human  terms  rather 
than  in  financial  statistics,  good  government  means. 

The  other  commission-manager  cities  are  still  busy  cleaning 
house,  getting  their  finances  in  order,  catching  up  with  their 
public  works  problem,  repairing  old  neglect.  When  they  get  this 
done,  what  will  they  do?  Gild  the  dome  on  the  city  hall?  Or 
will  they  call  in  the  social  worker  and  follow  up  their  surveys  of 
the  administration  by  surveys  of  the  people  in  the  alleys?  We 
know  at  least  that  Dayton,  the  pioneer  city,  is  leading  in  the 
right  direction,  a  fact  which  is  due,  I  understand,  largely  to  Dr. 
Garland,  head  of  the  department  of  public  welfare  under  Man- 
ager Waite. 

In  this  year  and  a  half  fifteen  more  cities  have  joined  the 
list  of  commission-manager  cities,  i.e.: 


OF  GOVERNMENT  125 

Grand  Rapids,  Mich 1 30,000  San  Jose,  Cal 28,946 

Alpena,  Mich 12,706  Watertown,  N.  Y 26,730 

Santa   Barbara,   Cal 11,659  Portsmouth,  Va 33,190 

San  Angelo,  Tex 10,321  Albion,  Mich 5,833 

St.  Augustine,  Fla 5,494  Brownsville,  Tex 10,517 

Westerville,  Ohio   1,903  Petoskey,  Mich 4,778 

Elizabeth  City,  N.  C 8,412  East   Qeveland,   Ohio 9,179 

Webster   City,    Iowa 5,208 

In  this  same  interval  fifteen  cities  adopted  the  commission  plan 
and  three  others  gave  it  up.  In  fact  the  commission  plan  has 
practically  stopped  spreading  where  the  new  plan  is  available 
and  the  torch  has  been  passed  on  to  the  new  plan. 

The  new  cities,  like  the  old,  have  chosen  their  managers  in 
most  cases  from  out  of  town.  There  has  been  one  more  case 
of  transfer  of  managers,  i.e.,  Manager  Carr  of  Cadillac,  who 
was  hired  at  increase  of  salary  by  Niagara  Falls.  There  are 
several  "lame  ducks,"  managers  who  for  one  reason  or  another 
are  managers  no  longer.  Two  or  three  of  the  men  have  unmis- 
takably failed  on  their  jobs. 

It  is  still  too  early  to  tell  what  the  average  tenure  of  the 
managers  is  likely  to  be,  but  there  is  nothing  to  indicate  that  it 
is  likely  to  be  short  or  that  cities  will  be  disposed  to  change 
their  managers  frequently.  No  manager,  I  think,  has  yet  lost  his 
job  as  the  direct  or  indirect  result  of  a  popular  election  in  the 
town,  but  this  may  be  largely  due  to  the  fact  that  most  of  the 
commissions  have  been  re-elected. 

Business  men  continue  to  take  to  the  commission-manager 
plan  like  ducks  to  water.  The  old  charters  were  subjects  for 
lawyers  to  discuss.  Here  is  something  business  men  under- 
stand. One  cannot  imagine  the  rotary  clubs  all  over  the  country 
discussing  a  charter  of  any  other  type  than  this. 

There  continues  to  be  a  tendency  to  make  heroes  of  the  man- 
agers. It  is  so  much  easier  for  the  public  to  get  a  picture  in 
their  minds  of  one  manager  than  of  five  commissioners.  This 
tendency  has  its  dangers.  One  manager,  for  instance,  gets  him- 
self quoted  at  length  in  the  daily  papers  nearly  every  day  on 
some  topic  or  other.  Publicity  is  a  good  thing.  The  more  3 
municipal  government  gets  itself  talked  about,  the  better.  But 
that  manager  would  be  less  likely  to  be  an  issue  in  the  next  elec- 
tion if  he  would  get  the  mayor  to  assume  the  glory— and  the 
responsibility. 

The  city  managers  have  now  held  their  third  annual  conven- 


126  CITY  MANAGER  PLAN 

tion.  Of  course  the  conventions  are  still  small  aflfairs  but  they 
are  not  as  good  as  they  ought  to  be.  At  present  certain  managers 
take  a  subject,  and  with  the  aid  of  midnight  oil  and  some  ref- 
erence books,  prepare  an  essay,  which  if  not  actually  amateurish, 
cannot  honestly  be  claimed  to  be  an  authoritative  contribution  to 
the  subject,  for  the  managers  are  not  specialists  and  do  not 
pretend  to  be.  The  managers,  however,  can  command  the  time 
and  attention  of  the  most  eminent  specialists  in  the  country, 
and  if  they  wish  to  discuss  the  problems  of  marketing  munic- 
ipal bonds,  why  waste  time  listening  to  Manager  So-and-so's 
efforts  on  that  subject  when  they  can  get  a  good  Wall  street 
financier  who  handles  bonds  for  hundreds  of  cities.  The  discus- 
sions that  result  when  the  expert  and  the  theorists  clash  with  the 
practical  managers,  who  are  face  to  face  with  immediate  prob- 
lems, would  constitute  real  municipal  reference  literature  of  the 
most  important  sort,  and  the  proceedings  of  the  city  managers' 
convention  would  become  important,  whereas  now  they  are 
merely  interesting.  The  governors'  conference  has  developed  the 
same  idea  that  no  one  is  good  enough  to  address  them  but  an- 
other governor,  with  the  result  that  the  governors'  conferences 
have  gone  to  seed. 

The  best  feature  of  the  managers'  conference  is  the  calling  of 
the  roll  of  cities,  when  the  managers  rise  in  turn  and  report  the 
achievements  of  the  past  year.  To  a  modest  manager  the  pro- 
cedure may  possibly  be  painful,  but  it  is  a  good  thing  for  the 
managers  and  undoubtedly  does  much  to  determine  the  spirit  of 
service  which  inspires  the  new  profession. 

Outspoken  and  organized  hostilities  to  the  commission-man- 
ager plan  may  always  be  expected  to  survive  for  a  few  years  in 
every  city,  at  least  until  there  has  been  more  than  one  election. 
In  some  cases  the  opposition  controls  newspapers.  A  reasonable 
amount  of  such  opposition  is  a  good  thing,  for  it  makes  munic- 
ipal officers  careful  to  see  that  everything  is  properly  and  care- 
fully explained  to  the  public.  Dayton  has  a  delightful  sheet 
known  as  the  Municipal  Searchlight,  devoted  exclusively  to 
throwing  mud  at  the  government  of  Dayton.  It  says  that  Dayton 
is  afflicted  with  expertitis,  a  municipal  disease  which  I,  for  one, 
fondly  hope  will  prove  contagious.  This  ill-tempered  little  pub- 
lication with  its  slender  store  of  specifications  and  its.  enormous 
store  of  billingsgate  furnishes  to  any  open-minded  man  indispu- 


OF  GOVERNMENT  127 

table  proof  that  the  opposition  in  Dayton  is  terribly  hard  up  for 
ammunition. 

In  Phoenex,  Arizona,  the  first  city  manager  lost  his  job  for 
reasons  which  seem  to  be  on  the  whole  creditable  to  him,  and  it 
seemed  logical  to  expect  that  his  successor  would  be  a  man 
more  amenable  to  political  control.  It  has  not  worked  out  that 
way,  however.  The  new  manager  has  achieved  a  list  of  reforms 
which  demonstrate  high  ability. 

At  Niagara  Falls  before  the  plan  went  into  effect,  the  news- 
papers and  the  local  political  lights  talked  about  the  city  man- 
agership as  if  it  were  a  fat  job  for  some  local  man.  But  the 
commission  was  true  to  the  traditions  of  the  plan  and  engaged 
a  non-resident  expert.  Manager  Carr  of  Cadillac. 

In  Newburgh,  a  rather  weak  commission  engaged  a  high- 
class  man  from  Cleveland.  There  was  a  legal  tangle  in  the 
charter  which  prevented  the  new  manager  from  reorganizing  the 
city  employees,  and  the  commission  removed  him  after  he  had 
been  in  office  only  five  months,  before  he  really  got  going.  There 
was  considerable  indignation  among  the  citizens  and  a  demand 
for  a  statement  of  the  charges.  No  charges  were  forthcoming 
and  the  commission  gave  no  explanation.  Even  the  manager  was 
only  able  to  obtain  trivial  excuses  and  justification.  It  was  said 
that  there  had  been  a  stormy  private  meeting  in  the  councils 
of  the  local  machine  a  short  time  previous  because  the  manager 
"had  done  nothing  for  the  Republican  party."  At  any  rate  it 
was  evident  that  the  commission  had  another  man  in  mind,  a 
local  business  man  and  unsuccessful  candidate  in  the  election  a 
few  months  previous,  whom  it  promptly  appointed.  The  new 
manager  seems  to  be  getting  more  action,  but  I  think  Newburgh 
is  one  of  the  cities  to  watch. 

I  have  saved  Ashtabula  for  the  last — Ashtabula  with  the 
unique  city  charter  that  is  the  ultimate  ideal,  with  its  council 
elected  by  the  Hare  plan  of  proportional  representation.  At  the 
first  election,  this  method  of  election  caused  an  Italian  saloon- 
keeper named  Nick  Corrado,  to  forge  ahead  of  a  young  attorney 
named  Rinto.  Professor  Hatton,  who  studied  the  election  on 
the  spot,  commented  that  "the  election  of  Rinto  would  have 
improved  the  council,  but  the  election  of  Corrado  made  it  more 
representative."  The  commission  after  quarreling  long  over  the 
appointment  of  a  manager,  selected  one  of  its  own  number  who 
needed  a  job  although  he  had  no  particular  training  for  this  one. 
He  undertook  at  the  same  time  to  remain  as  a  voting  member 


128  CITY  MANAGER  PLAN 

of  the  commission.  The  town,  of  course,  was  properly  indignant 
and  mass  meetings  were  held  with  the  result  that  in  a  few  days 
the  manager  withdrew,  after  which  the  commission  compromised 
on  the  selection  of  the  local  postmaster,  who  had  no  special 
claims  to  fitness  for  the  job,  beyond  good  political  connections, 
but  who  nevertheless  is  said  to  have  proceeded  to  do  well.  Since 
this  episode  Corrado  has  been  indicted  for  murder. 

Proportional  representation  undertakes  to  guarantee  to  every 
citizen  that  he  will  have  somebody  of  his  own  kind  at  the  city 
hall  to  represent  him.  In  achieving  this  purpose  the  Hare  plan 
used  in  Ashtabula  is  unquestionably  more  scientific  than  the 
ordinary  method,  and  its  advocates  have  nothing  to  apologize  for 
in  Ashtabula.  The  tough  element  of  a  town  is  entitled  to  its  due 
share  of  representation.  But  this  first  American  demonstration 
of  the  plan  in  Ashtabula  was  almost  too  perfect ! 

CERTAIN  WEAKNESSES  IN  THE  COMMISSION 
PLAN  OF  MUNICIPAL  GOVERNMENT.    WHY 
THE    COMMISSION-MANAGER    PLAN 
IS  BETTER' 

Comparison  of  the  two  plans 

The  commission-manager  plan  preserves  the  basic  merits  of 
the  commission  plan,  namely,  the  short  ballot  and  the  unification 
of  powers  in  a  single  body.    It  eliminates  the  defects. 

1.  The  commission  plan  provides  five  (or  three)  administra- 
tions, for  each  commissioner  is  head  of  his  department  and  to 
some  extent  autonomous.  Obviously  the  single-headed  arrange- 
ment of  the  manager  plan  is  sounder  and  less  apt  to  produce 
continuous  friction  between  departments. 

2.  The  commission  plan  attempts  to  put  the  commission  as 
a  whole  in  command  of  each  member  thereof  in  his  capacity  of 
department-chief.  But  the  commission  has  no  power  to  remove 
or  discipline  their  confrere  if  he  disregards  their  decisions. 
They  are  in  the  unhappy  position  of  a  boss  dealing  with  an  em- 
ploye who  is  sure  of  his  job.  A  common  result  of  this  situation 
is  that  each  commissioner  reigns  supreme  in  his  department  and 
resents  "interference"  from  other  commissioners,  thus  giving  the 

*  Reprinted  from  a  pamphlet  published  by  the  National  Short  Ballot 
Organization. 


OF  GOVERNMENT  129 

city  five  separate  little  governments  and  limiting  consultation  and 
common  counsel. 

3.  The  commission  plan  gets  rid  of  ward  log-rolling  but 
substitutes  inter-department  log-rolling.  Each  commissioner  in 
order  to  get  his  way  in  his  own  department  is  tempted  to  swap 
votes  and  to  abstain  from  criticizing  the  other  fellow's  budget 
— a  situation  that  does  not  tend  toward  economy. 

4.  The  commission  plan,  by  implication  at  least,  limits  the 
people  in  their  selection  of  commissioners  to  men  of  the  em- 
ployer type  who  are  competent  to  hire  and  direct  the  labor  of 
many  other  men.  Any  commission  consisting  solely  of  men  who 
earned  such  salaries  and  did  such  work  in  private  life  would  be 
utterly  unrepresentative  of  the  city's  population,  yet  it  is  the 
faulty  theory  of  the  commission  plan  that  such  men  will  be 
elected.  Of  course,  it  does  not  work  that  way.  In  Wichita  a 
railway  switchman  was  elected;  in  Topeka,  a  barber;  in  Des 
Moines,  a  laboring  man,  etc.  And  as  long  as  popular  govern- 
ment goes  on,  these  things  will  occur,  for  a  deep-seated  instinct 
in  our  people,  an  instinct  truer  than  the  reasoning  of  charter- 
makers,  insists  on  sending  to  city  hall  "our  own  kind"  of  men, 
men  who  understand  us  and  whom  we  understand.  "Yonder 
kid-gloved  employer  may  be  fitted  to  boss  a  big  city  department, 
but  he  is  likely  to  be  more  interested  in  making  things  pretty 
up  on  the  hill  than  in  what  goes  on  down  here  along  the  river 
where  he  never  comes.  So  we  elect  Bob  Jones  and  maybe  things 
will  not  run  smooth  and  he  will  have  a  lot  to  learn  and  he  will 
be  getting  more  money  than  he  ever  saw  before,  but  we  will  see 
him  once  in  a  while  and  he  will  do  anything  he  can  for  us  and 
we  will  not  be  expected  to  take  off  our  hats  if  we  go  to  ask  for 
something." 

In  other  words,  no  matter  if  commission  government  does 
omit  to  provide  for  representation  and  sets  up  simply  five  execu- 
tive offices,  all  demanding  broad  administrative  ability,  the  people 
will  nevertheless  sweep  aside  the  intent  of  the  charter  and  elect 
for  considerations  of  representation  just  the  same!  The  people 
are  right  about  it,  but  be  they  right  or  wrong,  we  must  cut  our 
cloth  according  to  the  fact. 

Now  Dayton,  at  its  first  election  under  the  commission- 
manager  plan,  elected  a  printer — not  a  master  printer,  but  a  type- 
setter who  works  at  his  case  for  a  daily  wage.  As  a  member 
of  the  commission  he  contributes  his  valuable  viewpoint  to  the 


130  CITY  MANAGER  PLAN 

joint  discussion  of  municipal  projects.  On  some  matters  he  is 
an  amateur  and  is  due  to  be  harmlessly  voted  down  by  his  con- 
freres. On  other  matters  his  is  the  most  anxiously  awaited 
voice  in  the  discussion  and  the  other  commissioners,  merchants 
to  whom  the  views  of  Labor  are  mysteries,  defer  to  his  superior 
knowledge  of  the  popular  effect  of  their  proposed  acts  in  certain 
quarters  of  the  town.  But  his  value  as  a  representative  is  not 
tarnished  by  his  personal  inability  to  administer  a  large  city 
department  successfully.  He  has  no  administrative  work  to  do, 
no  subordinates  of  his  own  to  discipline,  no  technical  details  to 
supervise.  The  commission-manager  plan  puts  him  in  the 
position  of  a  juror,  for  which  he  or  any  intelligent  man  is  fitted, 
whereas  the  commission  plan  puts  him  in  the  position  of  a  judge, 
which  demands  special  training. 

5.  The  commission  plan  ignores  the  value  of  experience  and 
permanence  in  the  high  executive  positions.  Elective  executives 
are  transient  amateurs.  They  do  not  usually  stay  in  office  long 
enough  to  learn  the  job.  The  tenure  is  so  insecure  that  it  does 
not  seem  worth  while  for  a  commissioner  to  study.  His  depart- 
ment is  at  the  mercy  of  his  inexperience.  He  is  liable  to  develop 
pet  projects,  oblivious  to  the  uncompleted  projects  of  his  pred- 
ecessor. Then  with  his  projects  half  done  he  goes  out  of  office, 
and  his  successor  springs  a  fresh  lot  of  schemes.  Such  vacilla- 
tion is  demoralizing.  It  is  inevitable  when  policies  are  swayed 
so  largely  by  single  minds  instead  of  by  the  composite  mind  of 
a  group. 

6.  The  commission  plan,  by  putting  these  transient  amateurs 
in  direct  charge  of  departments,  gives  the  people  a  correspond- 
ingly weak  and  uncertain  grip  on  the  city's  employees.  A  police 
"system,"  for  instance,  organized  in  resistance  to  public  clamor, 
can  laugh  at  this  series  of  well-meaning  short-term  amateurs 
who  incessantly  come  and  go  above  its  head. 

Such  instability  demoralizes  the  whole  city  service.  Minor 
city  jobs  become  correspondingly  insecure  and  unattractive  to 
good  talent.  Efficiency  is  a  plant  of  slow  growth.  It  does  not 
thrive  in  shifting  sand. 

Anyone  who  has  followed  the  politics  of  a  commission-gov- 
erned city  long  enough  will  recognize  much  in  the  foregoing  that 
is  familiar.  Note  that  not  one  of  these  faults  of  designs  is  to 
be  found  in  the  commission-manager  plan. 


OF  GOVERNMENT  131 

The  lines  of  responsibility  are  clear  and  straight.  They  never 
fork  or  leave  you  wondering  who  is  responsible. 

The  plan  gives  a  strong  single-headed  executive  presiding 
over  all  departments,  co-ordinating  their  activities,  acting  as 
a  court  of  appeal  in  such  cases  of  departmental  rivalry  or  fric- 
tion. 

The  people  can  select  the  truest  representatives  unhampered 
by  any  considerations  of  the  business  experience  or  salary-earn- 
ing capacity  of  their  favorities. 

Moreover,  these  representatives,  after  election,  have  in  turn 
a  surer  grip  on  the  government  through  a  manager  than  if  they 
were  individually  compelled  to  assume  departmental  direction. 

Membership  in  the  commission  becomes  attractive  to  the 
ablest  citizens  since  it  offers  opportunity  for  high  usefulness 
without  interruption   of  their  private  careers. 

Often  a  specific  cash  saving  appears  at  the  outset.  A  city 
that  is  paying  five  commissioners  $2,coo  each  can  hire  a  $6,000 
manager,  pay  the  commissioners  some  nominal  sum  and  save 
money.  And  the  one  high-grade  man  should  do  a  better  quality 
of  work  than  the  five  low-paid  ones. 


THE  COMMISSION  MANAGER  PLAN^ 

The  city  manager  form  of  government  can  be  made  success- 
ful. The  American  people  are  habituated  to  the  idea  of  change. 
It  is  customary  when  we  have  elected  one  party  into  power  to 
have  the  other  party  or  parties  immediately  start  a  campaign 
to  show  us  why  that  party  should  be  out  of  power.  We  are 
restless  for  change.  It  is  inbred  in  the  nation.  The  results  ac- 
complished by  the  new  forms  of  government  now  coming  into 
use  can  as  yet  scarcely  be  grasped  by  the  very  people  who  have 
voted  these  governments  into  power.  Each  new  improvement 
offends  some  one's  prejudice  or  purse.  Too  many  new  improve- 
ments breed  too  many  centers  of  discontent.  As  a  people  we 
are  fickle ;  we  learn  by  experience  and  slowly,  and  often  through 
waste. 

These  new  forms  of  municipal  government  have  many  ups 
and  downs  ahead  of  them.     We  love  to  live  as  we  have  lived. 

1  By  Henry  M.  Waite,  Dayton,  Ohio.  In  National  Municipal  Review. 
4:  40-9.  January,  1915. 


132  CITY  MANAGER  PLAN 

Changes  with  which  we  are  not  in  complete  sympathy  we  are 
prone  to  define  as  whims. 

Every  citizen  is  an  expert  on  all  municipal  questions.  Our 
duty,  your  duty,  is  to  educate  the  people  to  appreciate  the 
possibilities  of  these  new  forms  of  government  which  we  have 
called  into  being.    There,  to  my  mind,  lies  the  great  work. 

Publicity  must  be  given  to  the  results  obtained  by  the  new 
governments.  We  must  obtain  an  efficient  citizenship.  Interest 
should  be  maintained  through  the  schools.  We  need  fewer  elec- 
tions, longer  terms,  and  thereby  greater  efficiency.  The  com- 
mission-manager form  of  government  can  be  made  a  success.  Its 
permanency  depends  upon  an  intelligent  citizenship,  and  their 
continued  determination  to  keep  partisan  politics  out  of  munic- 
ipal matters. 

Immediately  after  the  Home  Rule  amendment  was  passed  in 
Ohio,  the  thinking  men  of  Dayton  worked  out  a  plan  of  action. 
The  new  charter  was  the  result  of  their  efforts.  This  charter 
comprises  the  basic  form  of  organization  used  in  all  large  cor- 
porations. 

Mr.  Patterson,  President  of  the  National  Cash  Register  com- 
pany, the  ruling  spirit,  used  the  rule  of  five  which  he  uses  in  all 
of  his  own  organization  charts. — Five  commissioners  elected  at 
large  and  non-partisan,  and  five  departments.  The  flood  of  Day- 
ton aided  in  bringing  the  people  together.  Party  lines  were 
obliterated.  Five  sound  business  men  were  elected  as  commis- 
sioners. They  selected  the  manager.  The  manager  selected  the 
directors  of  the  five  departments. 

The  director  of  law  was  on  the  charter  commission  as  its 
legal  representative.  The  director  of  finance  was  a  public  ac- 
countant. The  director  of  welfare  was  a  minister— broad  and 
intelligent. 

In  the  month  of  June,  July,  August,  September  and  October, 
the  death  rate  of  babies  of  under  one  year  has  been  reduced 
40  per  cent  over  last  year.  One  general,  and  two  tuberculosis 
clinics  have  been  established.  School  children  have  been  joined 
in  a  civic  workers'  league  and  help  to  keep  the  city  clean.  Prizes 
have  just  been  awarded  to  the  school  districts  showing  greatest 
improvement.  Children's  and  back  yard  gardens  have  been 
awarded  prizes. 

Any  family,  or  neighborhood  willing  to  clean  up  empty  lots, 
was  aided  by  the  city  removing  the  rubbish,  and  plowing  the 


OF  GOVERNMENT  133 

lots.  Four  hundred  lots  were  cleaned  and  plowed ;  four  hundred 
dirty  spots  were  turned  into  four  hundred  gardens  which  fur- 
nished vegetables  to  four  hundred  families,  and  gave  a  new 
interest  to  four  hundred  families. 

The  civic  music  league  has  been  established;  concerts  have 
been  given  in  community  centers  and  choruses  organized.  A 
series  of  six  concerts  to  be  given  by  foremost  artists  and  sym- 
phonies, has  been  arranged  for  this  winter,  at  a  rate  of  three 
dollars  and  a  half  for  the  season.  Twenty-five  hundred  seats, 
which  is  the  capacity  of  the  hall,  have  been  sold. 

In  ten  months  much  has  been  accomplished,  and  economically 
accomplished. 

The  director  of  service  is  an  engineer  trained  in  municipal 
work  and  brought  to  Dayton  for  this  service.  The  director  of 
safety  has  not  been  appointed;  the  manager  is  acting  director. 

All  the  men  selected  are  trained  for  the  particular  functions 
which  they  direct.  I  cannot  tell  you  the  political  faith  of  the 
commissioners,  or  of  the  directors.  They  are  selected  for  their 
ability.  There  were  no  political  debts  to  be  paid.  Our  energies 
have  been  expended  on  progressive  and  constructive  lines.  We 
have  not  attempted  the  sensational. 

Careful,  expert  investigations  have  preceded  all  new  plans. 
Expert  engineers  have  worked  out  intelligent  plans  for  improve- 
ments in  the  water  works,  looking  well  into  future  requirements. 

Expert  engineers  have  investigated  and  made  report  on  the 
proper  distribution  of  city  wastes. 

Expert  engineers  are  advising  us  in  the  plans  for  the  devel- 
opment of  a  comprehensive  sewer  system. 

In  a  similar  way,  we  have  investigated  crime  and  social  con- 
ditions, police  and  fire  departments,  parks  and  playgrounds,  city 
planning,  and  grade  elimination. 

In  our  finance  department,  our  new  accounting  system  is  the 
same  as  would  be  found  in  any  large  business.  Our  budget  is 
scientific.  Every  month  the  head  of  each  department  receives 
a  complete  financial  statement  which  shows  the  original  allow- 
ance, expenditures  and  balance  in  each  account.  We  keep  our 
expenditures  inside  our  allowances. 

In  August,  we  found  that  our  estimated  revenues  were  too 
high.  With  our  system  of  accounting  and  budget,  we  were  en- 
abled, in  two  days,  to  reduce  expenditures  $45,000  and  reorganize 
all  work  accordingly.    It  was  customary  to  issue  bonds  for  cur- 


134  CITY  MANAGER  PLAN 

rent  expenses.  This  practice  has  been  stopped.  We  inherited  a 
promissory  note  the  first  of  the  year  for  $125,00  in  the  safety 
department,  which  was  paid  in  February.  This  will  be  reduced 
this  year  over  $25,000. 

All  current  funds  in  the  treasury  have  been  put  into  one. 
It  has  not  been  necessary  to  borrow  any  additional  money  on 
this  note  up  to  this  time,  and  we  will  save  $5,000  in  interest. 

Our  purchasing  department  will  save  $20,000  this  year. 

Every  department  has  unit  cost  systems.  Efficiency  is  main- 
tained in  the  deadly  parallel. 

Police  and  fire  drills  have  been  enforced.  Civil  service  rec- 
ords show  merits  and  demerits.  The  men  are  listed  on  the  re- 
sults of  examinations  as  well  as  by  daily  performances. 

Policewomen  are  aiding  in  the  handling  of  women  derelicts 
and  domestic  troubles. 

The  organization  is  keyed  up  to  preventive  methods. 

The  Fire  Department  is  continually  making  house  to  house 
inspections,  reducing  fire  hazard. 

Workhouse  prisoners  are  used  on  municipal  improvements,, 
parks,  cleaning  and  repairing  streets. 

A  municipal  lodging  house  has  been  established.  The  inmates 
are  worked  one-half  day. 

All  philanthropic  and  city  nursing  has  been  combined  into  the 
welfare  department,  thus  saving  all  duplication  of  effort. 

District  surgeons  have  been  appointed :  three  baby  clinics  and 
milk  stations  have  been  established. 

All  these  are  factors  in  Dayton  progress  during  the  past  year 
— a  progress  that  is  real,  substantial  and  continually  growing. 

Following  the  reading  of  his  address  Mr.  Waite  sumbitted 
himself  to  a  cross-examination. 

Mr.  Shaw  :  What  was  done  in  the  matter  of  investigating 
the  various  departments  after  the  municipal  research  era  in  Day- 
ton? 

Mr.  Waite:  The  municipal  research  bureau  was  started  in 
Dayton  prior  to  any  work  on  the  new  charter.  They  are  still  at 
work,  and  have  been  a  great  help  to  us.  I  have  taken  the  trouble 
on  several  occasions  to  go  to  cities  that  are  contemplating  such 
a  change.  I  advise  them  against  rushing  in  too  rapidly,  when 
they  are  not  properly  prepared.  Before  these  changes  of  gov- 
ernment are  inaugurated  a  municipal  research  bureau  investiga- 
tion or  something  similar  which  is  impartial,   should  be  made. 


OF  GOVERNMENT  135 

Having  followed  such  a  bureau  in  two  cities,  it  is  to  my  mind 
necessary  for  three  very  primary  reasons : 

1st.  The  bureau  can  use  the  information  which  it  gets  as  a 
means  of  instructing  the  people  of  that  community  that  a  change 
is  necessary; 

2d.  When  the  government  does  come  into  effect,  it  is  abso- 
lutel}-  necessary  because  5'ou  cannot  expect  support  and  help 
from  the  people  who  are  in  office,  and  your  bureau  is  the  only 
impartial  body  which  has  the  information ;  it  is  of  wonderful 
help  in  putting  the  new  government  into  effect ; 

3d.  The  information  and  the  statistics  which  the  bureau  has 
compiled  are  the  only  means  by  which  comparisons,  of  the  old 
against  the  new,  can  be  made. 


Mr.  Childs  :  In  some  of  the  other  cities  where  they  have 
the  city  manager,  particularly  the  only  one  I  know  that  is  not 
in  this  country,  at  Port  Arthur,  Ontario,  there  is  a  tendency  of 
the  elected  directors  or  commissioners  to  interfere  with  the 
manager  in  petty  details.  It  often  happens  that  the  men  elected 
are  not  themselves  good  business  men,  and  are  interested  in  mat- 
ters of  detail  work,  without  seeing  the  broad  policies  involved, 
and  use  their  position  as  members  of  the  commission  to  inter- 
fere in  small  details  with  what  normally  should  be  the  work 
of  the  city  manager.  Have  you  any  trouble  of  that  kind  in  Day- 
ton, and  if  you  have,  how  do  you  handle  it? 

Mr.  Waite:  We  have  had  absolutely  no  such  trouble.  The 
commission  and  the  manager  work  cheerfully  together,  like  a 
board  of  directors  and  an  executive.  Of  the  elective  body  the 
manager  is  reall}'  nothing.  He  is  supposed  to  carry  out  the 
directions  and  the  policy  of  the  governing  board.  I  personally 
may  have  suggestions  to  make,  or  they  may  have  suggestions  to 
make,  as  they  always  do.  We  endeavor  to  work  shoulder  to 
shoulder  all  the  time.  We  alwaj^s  get  together.  We  set  aside 
Tuesday  morning  to  go  out  and  look  over  any  important  sub- 
ject, and  have  an  informal  meeting  one  evening  of  the  week. 
There  is  going  to  be  a  very  great  danger  in  my  mind  from  the 
fact  that  naturally  the  city  manager  is  the  person  who  is  up 
before  the  public  all  the  time — he  is  the  one  that  the  public  has 
got  its  fingers  on,  and  it's  going  to  be  difficult  to  get,  as  it  should 
be,  the  city  manager  in  the  background  and  the  commission,  the 
elective  body,  before  the  people. 


136  CITY  MANAGER  PLAN 

Mr.  Childs  :  I  heard  j'ou  make  this  same  comment  before  in 
discussing  the  plan — that  it's  up  to  the  people  after  all,  and  the 
plan  will  succeed  if  the  people  take  an  interest  and  back  it  up, 
and  work  with  it  and  so  on.  What  is  the  necessity  of  making 
that  remark  as  applied  to  the  city  manager  plan?  It  is  true  of 
any  plan  of  government.  Is  it  any  truer  than  in  the  city  man- 
ager plan? 

Mr.  Waite  :  I  suppose  it  is  perfectly  natural  that  I  should 
feel  that  it  is.  Of  course  it  is  not.  That  is  the  difficult  thing  to 
accomplish  in  all  changes  of  government  and  so-called  reforms. 
The  electors  are  awakened  and  aroused  through  some  particular 
chain  of  circumstances  or  psychological  movement.  They  effect 
this  change  of  government,  and  then  they  usually  pass  it  up. 
They  think,  "What  a  beautiful  thing  we  have  done."  Then  down 
it  comes.  They  do  not  stay  under  and  hold  it  up.  It  is  a  diffi- 
cult thing  to  keep  the  citizenship  interested  in  the  results  which 
they  are  obtaining  through  these  changes. 

Mr.  Childs:  You  don't  feel  that  the  plan  is  more  likely  to 
fail  through  lack  of  interest  then? 

Mr.  Waite:  It  is  more  likely  to  succeed,  simply  for  the  rea- 
son that  it  will  hold  the  public  attention  longer  and  clearer, 
because  you  have  that  centralized  authority  to  which  the  public 
are  always  looking. 

Query:  You  say  the  saving  in  the  purchasing  of  goods  last 
year  amounted  to  $20,000.  Do  you  mean  to  say  that  was  saved 
over  and  above  the  year  before,  and  if  so,  what  were  your  ex- 
penditures, and  by  what  method  could  you  have  saved  $20,000 
in  one  year? 

Mr.  Waite:  The  purchases  made  previously  in  Dayton  were 
made  as  they  are  in  a  great  many  cities,  and  in  most  states.  If 
A,  at  the  head  of  a  department,  or  B  or  C  wants  a  dozen  pen- 
cils, or  a  lot  of  stationery,  he  goes  out  and  buys  it.  The  differ- 
ent letterheads  in  the  various  departments  represent  the  artistic 
development  of  the  head  of  each  department.  Coal  was  pur- 
chased by  each  department.  All  supplies  were  purchased  in  that 
manner.  We  have  simply  issued  specifications  for  various  ma- 
terials. All  supplies  must  be  purchased  through  the  purchasing 
department.  Requisitions  made  must  first  bear  the  O.  K.  of  the 
finance  director  that  the  funds  are  available.  Then  bids  are 
taken  on  large  quantities  of  material. 


OF  GOVERNMENT  137 

We  have  the  bids.  We  have  them  opened  publicly.  Then  we 
commence  to  do  our  buying.  $20,000  is  the  amount  of  money 
which  we  have  saved  in  the  purchase  of  materials. 

Mr.  Childs  :  There  is,  I  understand,  a  minority  in  Dayton, 
which  is  more  or  less  active  in  opposition  to  the  whole  plan  and 
the  present  regime.  I  know  that  there  was  a  public  meeting  held 
there  which  opposed  the  commission  plan  and  the  way  it  was 
working,  and  that  had  a  powerful  influence  on  another  city  in 
Ohio  which  was  considering  the  adoption  of  the  plan.  I  would 
like  to  learn  a  little  bit  about  the  operations  of  that  minority, 
the  arguments  that  they  bring  up  against  the  plan — that  is,  of 
course,  if  it  won't  get  you  into  trouble. 

Mr.  Waite:  It  already  has.  I  don't  think  that  any  form  of 
government  is  a  success,  can  ever  be  a  success,  unless  it  has 
some  opposition.  Opposition  which  we  have  at  the  present  is 
socialistic  more  than  anything  else.  It  has  been  active  and  above- 
board  ever  since  we  started.  They  are  against  everything.  There 
is  no  satisfying  them.  They  have  no  particular  complaint  against 
anything  that  we  do,  except  that  we  do  not  immediately  buy  all 
the  surface  lines,  electric  lines  and  plants,  and  gas  companies. 
I  don't  consider  them  seriously.  It  has  not  grown.  It  is  just 
about  the  same  as  it  was  when  it  started.  I  do  not  mean  that 
municipal  objection  is  confined  entirely  to  the  socialists,  but  that 
opposition  is  a  healthy  one.  It  is  a  good,  sound  lot  of  fellows. 
They  are  working  hard.  I  go  before  them  and  talk  to  them. 
We  are  pretty  good  friends  on  the  outside,  but  they  dig  me  in 
the  ribs  every  chance  they  get. 

Their  arguments  are  rather  embarrrassing  to  me.  They  say 
"I  can't  understand  why  you  are  not  in  favor  of  municipal 
ownership.  Your  present  form  of  government  is  an  ideal  time 
to  take  over  all  these  activities." 


THE  CITY-MANAGER  PLAN  OF  GOVERNMENT 
FOR  DAYTON* 

On  August  12  the  voters  of  Dayton,  Ohio,  approved  a  charter 
giving  to  that  city  a  "city-manager"  plan  of  government — making 
it  the  first  American  municipality  of  considerable  size  to  secure 

1  By_  Lent  D.  Upson,  Director,  Dayton  Bureau  of  Municipal  Research. 
In  National  Municipal  Review.  2:639-44.  October,   1913. 


138  CITY  MANAGER  PLAN 

this  form  of  government.  To  this  feature  of  a  "controlled  execu- 
tive" has  been  added  a  number  of  progressive  administrative 
ideas. 

The  power  is  vested  in  a  non-partisan  commission  of  five, 
elected  at  large,  in  the  place  of  the  ward  council.  It  was  urged 
by  a  number  of  authorities  on  municipal  matters  that  the  com- 
mission would  be  more  representative  were  its  number  nine  or 
seven,  rather  than  five,  but  the  latter  number  was  agreed  upon 
in  order  to  secure  a  shorter  ballot.  None  of  the  candidates  are 
for  designated  offices,  so  the  preferential  form  of  voting  was  dis- 
carded for  the  ordinary  primaries  with  a  later  election — it  being 
thought  impractical  to  ask  voters  to  designate  five  first,  five 
second  and  five  other  choices.  Consideration  was  given  the  Hare 
proportional  representation  scheme,  but  it  was  discarded  for  the 
time  being,  in  the  belief  that  its  use  would  foster  political  align- 
ment in  municipal  elections.  Elections  are  to  be  held  every  two 
years,  the  three  candidates  receiving  the  greatest  vote  at  the 
first  election  being  chosen  for  a  four-year  term,  the  others  for 
two  year.  The  candidate  receiving  the  highest  vote  at  the  election 
at  which  the  greatest  number  of  commissioners  are  elected  shall 
be  mayor,  to  perform  the  few  duties  incumbent  upon  him  by 
general  state  law,  and  "for  ceremonial  purposes."  All  members 
of  the  commission,  as  well  as  the  city  manager,  are  subject  to 
the  recall  upon  a  25  per  cent  petition  of  the  registered  electors. 

In  distinction  from  the  straight  commission  plan  the  duties  of 
the  commission  are  purely  legislative — passing  the  annual  ap- 
propriation ordinance,  police  and  public  improvement  regula- 
tions, with  the  usual  legislative  power  to  investigate  the  operation 
of  any  department.  The  city  manager,  chosen  to  serve  at  the 
pleasure  of  the  commission  (with  the  recall  provision),  is  the 
administrative  head  of  the  government,  appoints  and  fixes  sal- 
aries of  his  immediate  subordinates,  including  the  principal  de- 
partmental and  sub-departmental  heads  and  their  deputies,  and  is 
personally  responsible  for  the  entire  administration  of  the  city. 
There  is  a  striking  analogy  between  the  functions  and  account- 
abilitv  of  this  officer  and  his  superiors,  as  compared  with  the 
similar  position  of  the  superintendent  of  public  instruction  and 
the  school  board  in  many  localities. 

To  comply  strictly  with  managerial  theories  the  executive 
should  be  empowered  to  employ  and  dismiss  such  of  his  em- 
ployees as  he  desires,  and  to  stipulate  such  compensation  as  he 


OF  GOVERNMENT  139 

deems  necessary.  In  this  instance  civil  service  clauses  are  incor- 
porated, which  provide  examinations  to  determine  persons  elig- 
ible for  appointment  in  all  but  a  small  unclassified  service; 
insure  the  standardization  of  wages  and  equal  pay  for  equal  ser- 
vice in  all  branches  of  the  government ;  create  a  six  months 
probationary  period  before  appointment;  and  which  requires  the 
certification  of  all  payrolls  by  the  chief  examiner — all  features  of 
a  modern  merit  law.  However,  it  is  further  provided  that  the 
manager,  in  consultation  with  the  chief  examiner,  shall  make 
the  designations  for  appointment  from  the  entire  eligible  list, 
rather  than  from  the  three  highest.  Such  a  rule  conforms  with 
private  business  practice,  but  in  public  affairs  will  probably 
secure  employment  for  the  politically  desirable,  and  serve  to 
vitiate  the  entire  merit  system.  Nor  did  the  charter  commission 
carry  their  theory  to  independence  in  the  selection  of  city  em- 
ployees to  its  logical  conclusion — freedom  to  hire  and  dismiss  at 
pleasure :  persons  employed  cannot  be  permanently  relieved  from 
duty  except  by  substantiation  of  charges  before  the  civil  service 
board.  It  is  doubtful  if  such  a  law  meets  the  requirements  of 
the  state  constitution,  which  provides  that  appointments  shall  be 
made  according  to  fitness  and  merit. 

As  would  be  anticipated,  the  powers  and  duties  of  the  man- 
ager are  a  summation  of  all  powers  usually  granted  to  the  heads 
of  departments,  boards,  or  units  of  government  over  whom  he 
will  have  supervision  and  control.    Such  duties  will  comprehend : 

a.  Supervision  of  departmental  administration. 

b.  The  execution  of  laws  and  ordinances. 

c.  Recommendation  of  legislative  measures. 

d.  Appointment  of  officers  and  employes,  subject  to  the 
provisions  of  the  civil  service  sections. 

e.  Preparation  of  reports. 

/.     Preparation  of  the  budget. 

After  lengthy  debate  relative  to  the  merits  of  leaving  the 
creation  of  departments  and  the  distribution  of  their  powers 
to  the  legislative  body  of  the  city,  such  plan  was  adversely  de- 
cided upon.  The  departmental  organization  of  the  city  conse- 
quently has  been  specified  in  the  charter,  permitting  fundamental 
duties  to  be  assigned  to  the  more  important  departmental  heads. 
A  reservation  is  made,  however,  by  which  the  commission  may 
create  additional  departments,  and  may  discontinue  or  distribute 
their  functions.     The  charter  organization  of  the  cit)',  excepting 


140  CITY  MANAGER  PLAN 

schools  and  the  courts  controlled  by  general  state  law,  is  prac- 
tically as  follows : 

I.     The  Commission  (subject  to  initiative,  referendum,  recall 
and  protest). 

A.  City  service  board. 

B.  City  Manager. 

1.  Department  of  law. 

2.  Department  of  public  service,  comprising  the  con- 

struction and  maintenance  of  streets,  sidewalks 
and  sewers ;  collection  and  disposal  of  waste ; 
and  management  of  public  utilities. 

3.  Department  of  safety,  comprising  the  divisions  of 

fire  and  police ;  building  inspection ;  and  the  en- 
forcement of  ordinances  relating  to  weights 
and  measures. 

4.  Department  of  finance,  comprising  the  divisions 

of  accounting,  the  treasury,  and  the  purchasing 
of  supplies. 

5.  Department    of    public    welfare,    comprising    the 

divisions  of  health,  parks  and  playgrounds, 
charities  and  correction. 

A  provision  borrowed  from  Germany,  but  unique  in  Ameri- 
can practice,  recommends  the  appointment  of  a  city-plan  board 
by  the  commission,  and  provides  for  such  other  citizen-boards 
to  act  in  an  advisory  capacity  with  departmental  heads,  as  the 
city  manager  may  deem  expedient.  No  powers  are  granted  these 
bodies,  except  as  may  hereafter  be  created  by  ordinance. 

More  interesting  features  of  the  proposed  Dayton  charter  are 
to  be  found  in  the  administrative  clauses  which  have  been  incor- 
porated— features  which  have  been  notably  absent  in  the  funda- 
mental law  of  most  municipalities.  The  charter  commissioners 
were  thoroughly  imbued  with  the  idea  that  inefficient  govern- 
ment is  due  to  badness  of  methods  rather  than  badness  of  men ; 
and  as  a  proposed  remedy  have  included  adequate  provisions 
governing  budgetary  and  accounting  procedure,  a  purchasing 
department,  granting  of  franchises,  public  improvements  and 
other  subjects  differentiated  from  the  organic  law  of  the  city. 
The  appropriation  estimates  are  to  be  compiled  by  the  city  man- 
ager from  detailed  information  obtained  from  the  several  depart- 
ments on  uniform  blanks.  The  entire  classification  of  expense 
must  be  as  nearly  uniform  as  possible  for  the  main  functional 


OF  GOVERNMENT  141 

divisions  of  all  departments,  and  there  must  be  presented  in 
parallel  columns  the  following  information: 

a.  A  detailed  estimate  of  departmental  needs. 

b.  Expenditures  for  corresponding  items  covering  the  past 
two  years. 

c.  Expenditures  of  the  present  year  including  transfers. 

d.  Supplies  on  hand. 

e.  Increases  and  decreases  in  requests. 
/.     Other  information  required. 

g.     Recommendations  of  the  city  manager. 

Provision  is  made  for  the  publication  and  public  hearings  on 
the  budget  estimate  before  it  can  be  enacted  into  law,  and  an 
additional  proviso  that  the  appropriation  shall  never  exceed  the 
estimated  income. 

In  connection  with  these  budgetary  sections  there  is  an  orig- 
inal clause  which  will  obviate  a  common  difficulty  met  in  munic- 
ipal finance — the  presence  of  more  than  ample  money  to  the 
credit  of  certain  funds,  while  legitimate  charges  and  pay-rolls 
against  other  appropriations  go  unliquidated  because  of  tempo- 
rary financial  stringency.  It  is  provided  in  the  Dayton  charter 
that 

all  moneys  actually  in  the  treasury  to  the  credit  of  the  fund  from  which 
they  are  to  be  drawn,  and  moneys  .  .  .  anticipated  to  come  into  the  treas- 
ury .  .  .  shall  be  considered  in  the  treasury  to  the  credit  of  the  appropriate 
fund. 

The  accounting  provisions  were  arrived  at  after  a  lengthy 
consideration  of  best  municipal  accounting  practices  including 
New  York  and  Cincinnati  procedures,  as  well  as  the  code  in- 
process  of  preparation  for  New  Jersey.  Difficulty  was  met,  not 
in  determining  what  systems  should  be  provided,  but  in  reduc- 
ing the  outline  of  the  procedure  to  fundamentals,  and  within  the 
limits  of  a  brief  charter.  Two  sections  found  in  the  proposed 
Cleveland  charter  were  finally  incorporated,  and  which  require 
that 

accounting  procedures  shall  be  devised  and  maintained  for  the  city  adequate 
to  record  in  detail  all  transactions  affecting  the  acquisition,  custodianship 
and  disposition  of  values. 

A  corollary  clause,  but  the  one  upon  which  the  above  depends 
for  its  interpretation,  reads  in  part  as  follows : 

the  commission  shall  cause  a  continuous  audit  to  be  made  .  .  .  such  state- 
ments   shall    include    a    general    balance    sheet,    exhibiting    the    assets    and 


142 


CITY  MANAGER  PLAN 


liabilities  of  the  city  supported  by  departmental  schedules,  and  schedules 
for  each  utility  publicly  owned  or  operated;  summaries  of  income  and 
expenditure  supported  by  detailed  schedules;  and  also  comparisons  .  .  . 
with  the  last  previous  year. 


jE-p-iHTriENr  Ai, 


O-VCG^  N  IZ  ATJD  M 


0-H6A  Ml-Z,  AT  I  OH     OF    /In    4>ie-r?iCflw    Bi^SiNE^i     C0'RFOT?AT/aN 


A  strict  accounting  interpretation  of  the  terms  "income  and 
expenditure"  will  place  the  city  accounting  upon  a  liability  basis 
rather  than  the  usual  cash  receipts  and  disbursements  basis, 
upon  which  most  cities  operate.  Immediately  following  the  in- 
auguration of  the  new  commission  it  is  expected  that  ordinances, 
now  in  preparation,  detailing  the  departmental  procedure  neces- 
sary under  the  foregoing  clauses  will  be  passed.  Such  ordinances 
will  specify  the  ledgers  and  records  to  be  installed,  the  method 
of  central  control,  character  of  operation  reports,  unit  cost  rec- 
ords— in  brief  will  be  the  basis  of  an  accounting  manual  for  the 
municipality. 


OF  GOVERNMENT 


143 


VOTERS  OFDAYTON 


In  CT  I  ATI  VE-FefeREnouM 


Law 


ii-i-icirY,  Unip-ication  or  Powers,   C  entr  ALiz.E.n  Aor^iNisTH  a  n  oN,  the  R(imc,ipleS 
Of  Business   Oh  s- a  n  iz. /vTiom    Attliexi     to   City    Qoverni-ient 

■DAyTOM.OHIO        "PoTOl-A-riol-J        I  2.  Sj  0  0  O 


Dovetailed  to  these  provisions  for  financial  accounting  are 
regulations  for  proper  pay-roll  control.  It  is  provided  that  the 
"head  of  each  department  .  .  .  shall  require  proper  time  re- 
ports for  all  services  rendered  ...  to  serve  as  a  basis  for  the 
preparation  of  pay-roll  vouchers,"  and  by  which  each  depart- 
mental head  must  submit  "current  financial  and  operating  state- 
ments exhibiting  the  transactions  (of  his  department)  and  the 
cost  thereof."  In  this  manner  it  is  believed  that  adequate  funda- 
mental provision  has  been  made  for  budget  making,  general 
finance  accounts,  costs  accounts  and  operative  records. 

Revenue  systems  and  forms  of  taxation  are  prescribed  by 
general  state  law,  not  subject  to  charter  modification.  However, 
complete  detail  has  been  provided  for  the  financing  of  public 
improvements,  too  lengthy  to  be  discussed  in  a  brief  article. 

Public  utility  franchises  may  be  granted,  subject  to  referen- 
dum, but  no  franchises  shall  be  exclusive,  and  each  shall  state 
the  terms  under  which  the  property  may  be  assumed  by  the  city; 


10 


144 


CITY  MANAGER  PLAN 


OF  GOVERNMENT  145 

or  the  municipality  reserves  the  right  to  condemn  public  utility 
property. 

So  brief  was  the  time  allowed  for  the  preparation  of  the 
Dayton  charter,  that  in  many  respects  the  document  has  a 
"scissors  and  paste"  character;  however,  there  are  numerous  fea- 
tures which  were  given  painstaking  thought  and  care — notably 
the  plan  of  organization  and  the  financial  sections.  No  formal 
survey  of  the  local  government  was  made,  yet  the  commissioners 
were  familiar  with  the  shortcomings  of  most  of  the  city  de- 
partments— the  absolute  lack  of  modern  accounting  system, 
the  absence  of  efficiency,  cost  and  operating  records,  the  need  of 
budgetary  procedure,  the  weakness  of  the  health  service,  the 
partisan  and  ineffective  character  of  the  merit  system — sufficiently 
familiar  with  these  problems  to  mould  a  procedure  and  adopt  a 
program  commensurate  with  the  needs  of  the  community.  The 
experience  of  Dayton  will  be  a  distinct  contribution  to  the  sci- 
ence of  politics. 


AMARILLO,  TEXAS' 

Last  year  we  were  fighting  over  an  ordinance  and  a  lot  of 
other  new  legislation  and  we  didn't  get  to  do  anything  during  the 
first  year,  except  answer  kicks  and  defend  ourselves.  This  year 
we  have  been  in  position  to  plan  work  and  do  it.  Our  town  is 
of  a  very  level  nature,  with  no  drainage  at  all.  If  we  get  six 
inches  fall  to  the  block  we  are  doing  very  well ;  ordinarily  we 
get  two.  We  have  no  storm  sewer,  but  we  have  plenty  of  ground 
to  put  one  in  with  nowhere  to  empty  it,  without  going  to  very 
great  expense.  We  have  been  working  out  a  system  for  drain- 
ing the  town. 

Our  pure  food  ordinance  was  put  through  last  year  in  about 
eight  months.  This  ordinance  requires  an  inspection  and  score 
of  all  places  where  food  products  are  sold — dairies,  grocery 
stores,  meat  markets,  confectioneries,  drug  stores.  All  persons 
handling  these  things  are  required  to  procure  a  health  certificate 
once  a  year.  The  health  officer  is  charged  with  the  duty  of  look- 
ing after  these  places.  In  the  dairy  division  they  have  the  tuber- 
culine  test.     Our  people  very  strenuously  objected  to  it.     There 

^  By  M.  H.  Hardin,  City  Manager.  Speech  before  the  City  Managers' 
Association,  November  15-17,  1915. 


146  CITY  MANAGER  PLAN 

was  a  charge  made  of  one  dollar  a  head  for  testing  the  cattle, 
but  we  didn't  get  the  money.  The  veterinary  got  that  and  they 
objected.  I  tried  to  get  the  city  to  take  that  over  and  hire  a 
veterinary  to  do  the  testing  but  the  city  attorney  ruled  that  we 
could  do  that  for  any  dairies  that  were  within  the  city  limits, 
but  not  for  those  outside.  Last  year  out  of  996  cows  furnishing 
the  city  of  Amarillo  with  milk  and  butter  we  found  32  reactors. 
This  year  out  of  something  over  1,100,  we  have  found  seven  so 
far,  and  we  have  made  a  ruling  that  where  the  herd  tests  out 
clear  this  year,  that  they  may  go  two  years,  provided  that  they 
take  nothing  into  that  herd  except  what  is  tested  and  that  we 
are  notified  of  all  changes  in  the  herd. 

We  were  paying  $2,300  for  sprinkling  ten  blocks  of  paving. 
This  year  we  are  doing  our  own  sprinkling  at  a  cost  the  first 
year  of  $1,987.  $621  of  this  first  year's  expense  was  the  cost  of 
the  sprinkler  and  team.  We  have  built  a  city  barn  with  thirty 
stalls.  The  main  part  of  the  barn  is  ninety  feet  long  and  thirty- 
six  feet  wide.  That  houses  our  thirty  head  of  stock  and  takes 
care  of  our  feed.    We  raise  our  own  feed. 

And  another  thing  that  we  have  accomplished  was  to  abolish 
a  twenty  year  street  lighting  contract  that  was  costing  us  $120 
a  year  for  265  candle  power  arc  light  and  $27.50  a  year  for  a 
sixty  candle  power  carbon  filament;  in  other  words,  a  red  hot 
hairpin  in  a  bottle.  In  lieu  of  that  we  procured  a  five  year  con- 
tract whereby  we  got  a  250  candle  power  gas-filled  light  for 
sixty  dollars  a  year  and  we  raised  our  sixty  candle  powers  to 
eighty  and  reduced  the  price  from  $27.50  to  $25. 

HOW  ONE  CITY  MANAGER  SUCCEEDED^ 

Little  old  Beaufort  is  in  the  "southiest"  part  of  South  Caro- 
lina. It  has  gained  more  than  state-wide  reputation  for  four 
things;  its  history,  its  climate,  its  trucking  industries  and  its 
political  fights.  The  city  manager  plan  was  adopted  by  a  small 
margin  of  votes  in  February,  1915,  after  a  bitter  campaign. 
Three  of  the  city's  ablest  business  men  were  elected  as  mayor 
and  councilmen  to  form  the  new  commission,  but  the  23-year-old 
manager  nearly  wrecked  the  ship  in  the  launching  by  siding  in 
with  one  of  the  old  political  factions  and  attempting  to  ride 
roughshod  over  the  heads  of  his  employers.     His  dismissal  led 

*  From  the  Short  Ballot  Bulletin.  August,  1916. 


OF  GOVERNMENT  147 

to  recall  proceedings  against  two  of  the  three  commissioners 
and  the  fight  was  on. 

The  only  "neutral"  in  town  was  Harrison  Gray  Otis,  the  new 
citj'  manager.  He  has  stayed  neutral  ever  since.  The  recall 
failed  and  Otis  has  replaced  factional  favoritism  and  political 
expediency  with  business  efficiency.  He  is  a  Michigan  man, 
trained  in  municipal  administration  under  the  New  York  Bureau 
of  Municipal  Research  and  the  Graduate  School  of  the  Univer- 
sity of  Michigan.  Otis  takes  his  profession  seriously.  He  spent 
over  a  year  studying  the  methods  of  city  managers,  visiting 
Daj'ton  and  Springfield,  Ohio,  Jackson  and  Cadillac,  Michigan, 
and  St.  Augustine,  Florida.  He  is  the  only  white  man  in  Beau- 
fort who  is  not  a  Democrat.    He  is  strictly  independent. 

The  first  year  under  the  management  of  Mr.  Otis  ended 
August  16.  During  the  year  every  ordinance  passed  has  been 
upon  his  recommendation  and  there  has  not  been  a  dissenting 
vote.  Every  suggestion  made  to  the  commission  by  the  manager 
has  been  accepted.  Not  once  has  the  cry  of  "politics"  been 
raised.     And  Beaufort  has  been  converted  into  a  little  Dayton. 

The  annual  report  just  published  is  written  in  snappy  style 
so  the  the  citizens  will  read  and  understand.  It  sums  up  34  defi- 
nite achievements  of  which  any  city  may  be  proud.  A  large 
floating  debt  was  wiped  out  and  the  year  closed  with  a  surplus. 
This  in  the  face  of  heavy  loss  of  revenues  due  to  state-wide 
prohibition. 

Modern  accounting  and  a  scientific  budget  system  have  been 
installed. 

A  tax  map,  showing  every  lot  and  building  in  town,  resulted 
in  putting  several  hundred  acres  of  city  real  estate  on  the  tax 
books  that  had  been  escaping  taxation.  Many  back  taxes  have 
been  collected  without  a  protest. 

Lawns,  gardens  and  tennis  courts  have  replaced  dump  heaps. 

City  purchasing  has  been  put  on  a  competitive  basis  and 
accounts  paid  promptly  with  a  great  saving  in  prices. 

"Clean-up  Week"  is  just  past  and  nearly  2,000  cartloads  of 
garbage  and  trash  removed  from  private  premises  by  city  carts 
without  charge. 

Mosquitoes  and  flies  have  been  fought  with  oil  can,  drainage 
and  the  strong  arm  of  the  law. 

Building  inspection  to  lessen  fire  loss  has  been  enforced  by 
stringent   ordinance. 


148  CITY  MANAGER  PLAN 

A  scientific  sinking  fund  schedule  has  cut  down  the  annual 
deposits  60  per  cent  and  saved  the  former  overcharge  to  the 
taxpayers. 

These  are  some  of  the  things  the  city-manager  plan  has 
brought  to  Beaufort.  Strangers  call  it  the  cleanest  town  in  the 
state.    It  is  clean,  physically  and  politically. 


FIRST  ANNUAL  REPORT  OF  THE  CITY  COUN- 
CIL AND  CITY  MANAGER  TO  THE  CITIZENS 
OF  BEAUFORT,  SOUTH  CAROLINA' 

The  first  year  under  the  commissioner-manager  plan  ended 
April  30,  1916.  It  has  been  a  period  devoted  largely  to  "pre- 
paredness," to  adjusting  the  various  parts  of  the  new  adminis- 
trative machinery  so  as  to  secure  the  mutual  understanding  and 
co-operation  essential  to  business  success.  The  close  of  the  year 
finds  the  entire  city  government  pulling  together  and  unified  in 
its  purpose  of  treating  all  citizens  with  equal  fairness  and  giving 
the  tax-payer  the  most  for  his  money.  Every  ordinance  passed 
has  received  the  unanimous  vote  of  the  council.  Many  serious 
problems  have  arisen.  Some  have  been  solved;  some  are  still 
unsettled  and  their  solution  awaits  the  coming  year.  The  founda- 
tion now  laid  presages  twelve  months  of  progress  for  1916. 

Government  Reorganised. — A  simple  business  organization 
has  replaced  the  old  plan  of  council  committees  and  unrelated 
departments.  This  rearrangement  has  been  gradual  and  the 
change  brought  about  without  interference  with  routine  work. 
The  city  government  of  Beaufort  is  in  accord  with  the  model 
charter  adopted  by  the  National  Municipal  League. 

City  Hall  Equipped. — A  city  hall  has  been  secured  by  re- 
modelling the  building  formerly  used  as  engine  house.  Four 
rooms  have  been  partitioned  off  and  furnished.  One  serves  the 
combined  purpose  of  central  office  and  council  room ;  a  second 
is  used  as  supply  room  for  the  water  and  light  division,  while  the 
others  are  turned  over,  rent-free,  to  the  government  demonstra- 
tion agents  to  further  the  agricultural  interests  of  the  community. 
The  Chamber  of  Commerce  is  permitted  free  use  of  the  council 

1  Harrison  G.  Otis,  City  Manager, 


OF  GOVERNMENT  149 

room  for  its  meetings.  The  work  of  equipping  the  offices  was 
done  largely  by  prisoners  at  practically  no  expense. 

Budget  System  Introduced. — A  complete  modern  budget  sys- 
tem, following  the  Dayton  classification,  has  been  introduced, 
mapping  out  the  year's  work  in  advance.  The  budget  for  the 
coming  year  forms  a  part  of  this  report.  Such  a  system  makes 
deficits  practically  iinpossihle. 

Modern  Municipal  Accounting  System.- — A  complete  modern 
accounting  system,  comparable  to  any  in  the  country,  has  been 
installed  at  no  expense.  It  is  so  simple  as  to  require  but  little 
bookkeeping,  yet  so  complete  that  it  furnishes  any  desired  infor- 
mation at  a  glance. 

Deficit  Turned  to  Surplus. — When  the  new  government  took 
up  the  reins  May  ist,  1915,  it  faced  a  deficit  in  the  current  ac- 
counts of  over  $3,350;  $2,600  in  the  general  city  funds  and  the 
balance  in  the  water  and  light  division,  due  for  equipment.  The 
revenues  for  the  combined  departments  have  been  $1,737  l^^^ 
than  in  191 4,  permanent  improvements  costing  over  $1,200  have 
been  paid  for,  and  the  first  of  May,  1916,  finds  a  combined  cur- 
rent surplus  of  some  $700. 

Tax  Collection  Enforced. — For  the  first  time  in  years  the  pro- 
visions of  the  tax  ordinance  relative  to  penalties  was  enforced. 
Penalties  were  exacted  of  70  taxpayers;  23  collections  were  made 
by  executions  and  two  pieces  of  property  sold  at  auction  by  the 
chief  of  police.  In  addition  to  this  collection  of  current  taxes, 
over  $3,000  of  alleged  delinquent  taxes  were  collected  by  the 
treasurer  and  the  ex-city  manager.  These  taxes  were  paid  under 
protest  and  suits  for  recovery  are  still  in  the  courts.  The  funds 
so  collected  have  not  been  counted  as  revenue  as  they  are  held 
in  a  special  reserve  fund  pending  the  outcome  of  the  suits. 

Tax  Map  Survey. — During  the  latter  part  of  the  fiscal  year,  a 
complete  survey  of  the  city  has  been  made  for  the  purpose  of 
drafting  a  map  which  will  be  used  as  the  basis  for  the  new  tax 
system.  Over  400  acres  of  city  real  estate  escaped  taxation  in 
1915  by  being  omitted  from  the  tax  books,  due  to  the  lack  of 
a  proper  map. 

License  Revenue  increased  zvitbout  raising  Fees. — The  amount 
of  revenue  realized  from  trade  and  professional  licenses  ex- 
ceeded the  average  of  the  three  preceding  years  by  approximately 
$500.  No  fees  were  raised  except  on  merchants  carrying  over 
$10,000  worth  of  stock.    A  few  new  licenses  were  added,  includ- 


150  CITY  MANAGER  PLAN 

ing  the  railroad  and  insurance  companies,  the  latter  being  based 
on  the  collections  made. 

"Streef  Tax  Introduced.  To  equalize  the  burden  of  taxation 
and  help  cover  the  loss  of  the  dispensary  profits,  an  ordinance 
requiring  street  duty  of  four  days  or  a  commutation  tax  of 
$2.50  of  all  male  residents  of  proper  age  and  qualifications  was 
passed.  The  cash  revenue  received  and  the  work  done  has 
proved  the  plan  a  sucess. 

Scientific  Sinking  Fund  Schedule. — A  sinking  fund  schedule, 
for  the  liquidation  of  city  bonds,  has  been  worked  out,  showing 
the  exact  condition  of  the  sinking  fund  at  any  moment  from  the 
present  until  the  maturity  of  the  bonds  in  1930.  This  schedule 
shows  that  if  funds  continue  to  earn  4  per  cent  compounded 
quarterly,  the  entire  issue  can  be  redeemed  at  the  earliest  matur- 
ity date  by  making  an  annual  deposit  of  but  $1,250.  Following 
the  former  plan  of  6^  mills  tax,  the  city  put  nearly  $3,000  in 
the  sinking  fund  for  the  preceding  year.  A  continuance  of  the 
old  plan  would  have  piled  up  over  $80,000  of  the  taxpayers' 
money  to  pay  $43,000  worth  of  bonds. 

Competitive  Bids  for  Supplies. — Most  city  supplies  are  pur- 
chased through  competitive  bidding.  Prices  have  been  cut  and 
patronage  given  to  those  deserving  it.  Incidentally  the  price  of 
crushed  oyster  shell,  for  use  on  the  roads,  has  been  reduced 
from  $2.00  to  $1.25  per  ton  by  buying  in  quantities. 

Free  Water  and  Light  Service  as  Dividend  to  City. — Begin- 
ning January  i,  1916,  the  city  discontinued  paying  the  water  and 
light  division  for  its  services.  The  value  of  this  service  is  in 
excess  of  $2,400  a  year  and  as  the  duplicate  plant  has  been  paid 
for,  this  amount  will  be  declared  a  monthly  dividend  in  the  way 
of  free  service.  This  is  equivalent  to  a  $2,400  increase  of  revenue 
to  the  general  city  funds. 

The  water  and  light  plant  has  produced  a  good  dividend  on 
the  investment  as  will  be  seen  in  the  financial  statement.  Many 
new  customers  have  been  added.  Expenses  have  been  cut  by 
combining  the  office  with  that  of  the  other  departments,  eliminat- 
ing rent  and  clerk  hire.  The  profits  have  been  sufficient  to  pay  off 
all  outstanding  indebtedness  for  the  duplicate  plant  installed,  to 
extend  the  pole  line  at  a  cost  of  over  $1,200,  to  give  four  months 
free  service  to  the  city  valued  at  $800,  and  to  leave  a  snug  sur- 
plus with  which  to  start  the  new  year.  Frequent  chemical  tests 
by  the  state  board  of  health  prove  our  water  to  be  of  superior 


OF  GOVERNMENT 


iSi 


quality  and  free  from  all  injurious  substances.  The  depot  road 
has  been  equipped  with  street  lights. 

Liquor  Laws  Rigidly  Enforced. — Backed  by  the  Mayor  and 
Council,  the  police  have  waged  a  vigorous  campaign  against  vio- 
lators of  the  liquor  laws  with  the  result  that  several  convictions 
have  been  secured. 

Collection  of  Garbage  and  Waste. — The  city  affords  free 
service  in  collecting  all  garbage  and  waste.  While  this  service 
has    been    performed   heretofore,    a    more    careful    attention    to 


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schedule  has  increased  its  value  and  complaints  are  very  infre- 
quent. Throughout  the  year  city  gardeners  have  been  employed 
to  attend  to  the  cutting  of  grass  and  repair  of  sidewalks.  Even 
the  raking  of  leaves  has  become  a  city  duty. 

Sanitation  Increased. — Health  measures  have  been  passed  by 
the  Council  and  enforced  by  the  Board  of  Health  and  police, 
greatly  reducing  the  number  of  mosquitoes  and  flies.  These  meas- 
ures include  the  oiling  of  all  stagnant  waters,  the  cutting  of 
weeds  and  proper  care  of  garbage.  Disinfectants  are  distributed 
free  to  applicants  and  a  large  quantity  kept  on  hand  at  all  times 
to  forestall  emergencies.  Beaufort,  from  the  physician's  stand- 
point, is  "distressingly"  healthful. 


152  CITY  MANAGER  PLAN 

Publicity  of  City  Affairs. — An  effort  has  been  made  to  keep 
the  citizens  in  touch  with  the  conduct  of  their  government.  A 
column,  dedicated  to  city  affairs,  has  been  maintained  in  the  local 
papers  and  acknowledgment  is  hereby  made  to  the  Beaufort 
Gazette  and  Beaufort  County  Leader  for  the  courtesies  extended. 
Handbills  and  posters  have  explained  new  ordinances.  The  pub- 
lic is  always  invited  to  attend  the  sessions  of  the  City  Council. 


CADILLAC,  MICHIGAN' 

Cadillac  is  a  city  of  about  ten  thousand  people  located  in 
northern  Michigan  about  one  hundred  miles  north  of  Grand 
Rapids.  Let  me  say  further  that  the  Cadillac  automobile  is  not 
made  in  Cadillac  City.  However,  we  are  now  about  to  make  a 
Cadillac  motor  truck.  We  are  situated  in  that  part  of  Michigan 
which,  just  a  few  years  age,  boasted  of  inexhaustible  timber  re- 
sources. We  are  surrounded  on  three  sides  by  stumps  and  on  the 
fourth  side  we  rest  on  the  shore  of  Lake  Cadillac,  a  little  lake 
about  six  miles  in  circumference. 

Our  charter  there  was  placed  in  operation  on  April  i,  1914. 
The  reason  for  the  adoption  of  the  city  manager  plan  of  gov- 
ernment was  not  because  Cadillac  was  perhaps  any  worse  than 
the  majority  of  our  cities,  but  the  people  merely  desired  to  get 
one  dollar's  worth  for  every  dollar  expended.  They  wished  to 
get  away  from  the  regular  annual  city  election  and  the  attendant 
regular  annual  mud  slinging.  They  also  felt  that  by  centralizing 
the  administrative  functions  of  government,  they  would  be  able  to 
eliminate  a  great  deal  of  lost  energy  in  their  municipal  enter- 
prises. Last  year  our  total  money,  expended  for  school  purposes, 
amounted  to  $62,000,  for  all  other  municipal  purposes  about 
$78,000,  that  is — in  1914.  A  comparison  of  our  expenditures  in 
1914,  as  against  the  expenditures  of  a  like  period  in  1913,  shows 
an  actual  saving  of  $7,000,  in  running  expenses  of  the  city. 
This  saving  was  not  effected  by  curtailing  any  of  the  efforts  of 
the  city;  on  the  other  hand,  the  work  was  better  done  and  the 
personnel  of  the  department  was  improved  over  what  it  had 
previously  been.     The  economy  in  expenses  is  not  all  apparent 

^  By  O.  E.  Carr,  City  Manager.  Speech  before  the  City  Managers'  As- 
sociation, November  15-17,   1915. 


OF  GOVERNMENT  153 

when  I  say  seven  thousand  dollars  was  saved.  We  have  spent 
over  two  thousand  dollars  in  correcting  mistakes  made  by  former 
administrations,  simply  on  account  of  the  lack  of  good  construc- 
tion methods.  For  illustration,  three  years  ago  a  trunk  sewer 
was  built  there,  fifteen  inches  in  diameter.  This  sewer  was  laid 
considerably  below  the  ground  water  level,  and  was  constructed 
so  poorly  that  last  spring,  that  is,  in  1914,  we  were  unable  to 
pass  a  two  inch  rod  through  it.  The  sewer  was  completely  filled 
up,  by  the  infiltration  of  quicksand  in  which  it  was  laid.  In  relay- 
ing the  section  which  it  has  been  necessary  to  reconstruct,  it  was 
found  that  in  a  section  two  hundred  feet  in  length,  four  addi- 
tional lengths  of  24  inch  tile  were  required.  That  is  the  best 
illustration  that  can  be  given  to  show  the  way  in  which  it  was 
loosely  put  together.  In  1915,  we  had  what  was  considered  a 
very  ambitious  program  for  improvements,  including  the  grading 
of  two  and  a  half  miles  of  streets,  the  laying  of  one  mile  of 
sewer,  the  laying  of  three  miles  of  curbs  and  gutters,  the  laying 
of  one  mile  of  sidewalks  and  one  block  of  brick  paving.  All  tlTis 
work  has  now  been  completed.  It  has  all  been  done  by  the  city 
forces  with  very  few  exceptions — that  is,  been  done  by  day  labor. 
It  is  not  possible  to  say  what  our  saving  in  1915  has  been  as 
compared  to  previous  j^ears.  The  figures  are  not  ready  except 
in  the  detail  of  the  laying  of  this  concrete  work,  curb  and  gutter 
and  sidewalk.  Early  in  the  spring  we  purchased  a  concrete 
mixer.  We  also  purchased  some  steel  forms  for  sidewalk,  curb 
and  gutter.  By  comparison  with  the  contract  prices  prevailing 
in  1914,  under  which  this  same  kind  of  work  was  done,  we  have 
saved  in  this  item  alone,  something  over  three  thousand  dollars 
to  the  people  of  the  city  of   Cadillac. 

Now,  I  have  outlined  the  work  done  during  the  past  year  in 
the  city  by  the  revenue  or  as  outlined  in  the  city  budget.  The 
work  as  shown  in  the  city  of  Cadillac  this  last  year  does  not  stop 
there.  There  have  been  constructed  something  over  two  and  a 
half  miles  of  sixteen  foot  concrete  road,  reaching  nearly  one  half 
the  way  around  our  drive  around  Lake  Cadillac.  This  has  been 
made  possible  by  the  generous  contributions  of  our  public 
spirited  citienzs.  We  have  also  this  last  year  established  the  first 
city  play  ground,  the  money  for  this  being  also  donated  by  one 
of  our  wealthy  citizens.  We  have  also  installed  a  single  unit 
boulevard  lighting  system  in  our  business  section.  The  money 
for  this  purpose  was  also  entirely  donated  by  our  business  men. 


154  CITY  MANAGER  PLAN 

The  work  as  done  this  last  year  is  probably  more  than  has 
been  done  in  this  city  in  the  past  five  years.  As  far  as  the  work 
done  by  money  contributed  by  our  wealthy  citizens  is  concerned, 
there  has  been  more  work  this  past  year  than  has  ever  been  done 
in  the  city  previously.  In  conclusion  allow  me  to  put  the  matter 
as  one  of  the  largest  contributors  stated  it  to  me.  This  gentle- 
man told  me  that  the  reason  why  the  wealthy  men  of  the  city  of 
Cadillac  were  willing  to  give  of  their  wealth  for  public  improve- 
ments in  the  generous  manner  in  which  they  had  done  this  year, 
was  because  they  saw  that  they  were  able  to  receive  practically 
one  dollar  in  value  for  every  dollar  given  in  this  way. 


CITY  MANAGERS'  REPORT  FOR  1916^ 

The  annual  report  of  City  Manager  T.  V.  Stephens,  pre- 
sented to  the  city  commission  and  acepted  by  the  body  Wednes- 
day night,  is  a  history  of  Cadillac's  city  affairs  during  1916. 
The  report  is  as  follows : 

A  large  amount  of  new  improvements  have  been  accomplished 
during  the  past  year,  among  which  are  the  following : 

One  mile  of  six-foot  sidewalk. 

Two  and  a  quarter  miles  of  curbs  and  gutters. 

Two  and  a  half  miles  of  16-foot  concrete  road. 

Eighteen  hundred  feet  of  sanitary  sewer. 

Twenty-eight  hundred  feet  of  storm  sewer. 

Twelve  thousand  square  yards  of  new  macadam. 

Twenty-seven  hundred  square  yards  of  brick  pavement. 

And  a  forty-five  foot  reinforced  concrete  dam. 

Other  than  new  construction  work,  much  was  done  in  the 
way  of  repairs  to  streets,  alleys,  sidewalks  and  sewers.  Over 
10,000  square  yards  of  macadam  streets  were  resurfaced  with 
crushed  stone  and  gravel.  About  45,000  square  yards  of  maca- 
dam streets  were  treated  with  Tarvia  "B"  with  very  successful 
results.  This  was  done  with  the  pressure  distributor  purchased 
jointly  by  the  city  and  Wexford  county.  The  street  surfaces 
were  treated  with  about  one-third  of  a  gallon  per  square  yard, 
the  total  cost  being  less  than  two  and  one-half  cents  per  square 
yard.    More  should  be  applied  during  the  coming  season  in  order 

*  From  The  Cadillac  Evening  News,  February  23,   i9i7. 


OF  GOVERNMENT  155 

that  our  macadam  streets  may  be  kept  in  good  condition  at  the 
least  cost  of  maintenance.  About  three  hundred  feet  of  storm 
sewer  were  relaid,  and  several  hundred  feet  were  cleaned  and 
repaired. 

The  year's  supply  of  cement  and  brick  was  contracted  for 
when  the  market  prices  were  at  the  minimum.  Manhole  and 
catch  basin  castings  were  purchased  this  year  for  20  per  cent 
less  than  was  paid  in  previous  years,  notwithstanding  a  15  per 
cent  increase  in  labor  and  materials. 

A  contract  for  street  lighting  has  been  awarded  for  five  years 
resulting  in  a  saving  of  over  $1,240  as  compared  with  the  cost 
for  the  past  five  years. 

A  contract  has  been  made  for  furnishing  electric  current  for 
the  sewage  pumping  station  under  a  different  rating  thereby 
saving  the  city  over  $250  per  year  for  electric  power. 

A  re-design  of  the  Cobbtown  trunk  sewer  was  made  by  the 
City  Manager,  representing  a  saving  of  $3,500  in  construction 
besides  the  great  inconvenience  caused  by  having  to  tear  up 
4,000  square  yards  of  bitulithic  pavement  on  Mitchell  street. 

The  advisability  of  doing  municipal  work  by  day  labor  can  be 
questioned  by  none.  A  typical  example  of  the  saving  resulting 
from  the  employment  of  day  labor  under  direct  municipal  super- 
vision was  the  brick  paving  on  Lake  street  for  which  bids  were 
received  and  rejected,  the  work  being  completed  by  the  city  with 
a  saving  of  46  per  cent  for  labor  only. 


Previous  to  the  adoption  of  the  commission-manager  form  of 
government,  no  interest  was  realized  from  the  banks  on  city 
deposits.  During  the  past  year,  over  $900  in  interest  have  been 
credited  to  the  contingent  fund  for  the  use  of  city's  money. 

An  interesting  feature  of  the  reports  for  the  past  few  years 
is  the  balance  of  cash  on  hand  at  the  end  of  each  year.  On 
January  ist,  1915,  the  treasurer's  report  showed  a  balance  on 
hand  of  $41.51;  January  ist,  1916,  a  balance  of  $9,830.62;  Janu- 
ary 1st,  1917  a  balance  of  $17,899.48  in  addition  to  $10,000  re- 
ceived from  the  sale  of  bonds. 

Although  the  labor  situation  was  somewhat  critical  last  sea- 
son, the  progress  of  the  work  under  the  program  outlined  was 
not  seriously  impeded  at  any  time.  The  bulk  of  our  year's  work 
was   completed   at   an    early    date   and   general   satisfaction   has 


156  CITY  MANAGER  PLAN 

voluntarily  been  expressed  by  our  employers — the  citizens.  The 
dividends  of  a  municipal  corporation  are  realized  in  an  effective 
and  efficient  public  service,  and  it  is  with  genuine  pleasure  that 
we  close  such  a  successful  year  and  recount  the  many  improve- 
ments and  savings  of  the  past  season. 

To  the  commissioners,  are  due  the  thanks  of  cooperation  and 
assistance,  without  which  these  conditions  would  have  been  im- 
possible. Attention  should  also  be  called  to  the  services  of  the 
city  employees,  whose  interest,  good  will  and  hard  work  have 
contributed  much  to  the  success  of  the  year's  accomplishments. 


CLARINDA,  IOWA' 

Clarinda,  Iowa, 
October  20th,  1916 
To  Whom  It  May  Concern : — 

Each  mail  brings  many  inquiries  to  this  city  requesting  infor- 
mation in  regard  to  city  manager  form  of  government,  which 
has  been  in  operation  in  this  city  since  April  1913.  The  business 
men,  officers  of  the  Commercial  Club  and  City  Manager  find 
it  impossible  to  reply  to  all  of  these  with  a  personal  letter.  At 
the  request  of  many  who  have  received  such  inquiries  I  have, 
in  the  following,  made  an  effort  to  set  out  some  of  the  advan- 
tages found  in  the  city  manager  plan  of  government  over  the 
old  system,  in  the  hope  that  it  will  be  of  some  value  to  those 
seeking  such  information.  Clarinda  was  the  third  city  in  the 
United  States  to  adopt  such  a  plan.  In  April,  1913,  the  Mayor 
and  Council  were  elected  with  the  understanding  they  would 
adopt  the  city  manager  plan.  At  that  time,  the  Iowa  law  did  not 
provide  for  the  appointment  of  a  city  manager,  and  the  Council 
passed  an  ordinance  creating  the  office.  At  the  next  session  of 
the  State  Legislature,  in  January,  1915,  a  law  was  enacted  con- 
taining the  same  provisions  that  were  in  the  original  Clarinda 
ordinance.  This  law  is  found  in  Section  6791a  Supplementary 
Supplement  of  the  Code  of  Iowa  of  1915. 

The  city  manager  plan  of  government  is  just  a  plain  busi- 
ness proposition.  If  five  or  six  men  were  the  owners  of  your 
city  and  they  were  required  to  conduct  its  affairs,  they  would 

*  By  T.  A,  Wilson,  City  Manager,  Clarinda,  Iowa. 


OF  GOVERNMENT  IS7 

undoubtedly  adopt  a  plan  following  in  the  direction  of  large 
corporations  and  employ  a  manager  to  look  after  the  details  of 
the  business,  and  especially  is  this  true  if  they  had  other  private 
interests  to  take  up  their  time,  as  the  ordinary  councilmen  have. 

The  plan  is  not  a  one  man  power  proposition,  as  some  of  the 
uninformed  believe  it  to  be.  The  Alayor  and  Council  make  the 
laws  and  plan  the  improvements  and  direct  the  City  Manager 
to  carry  out  the  details  of  those  plans,  and  see  to  the  enforce- 
ment of  the  ordinances  and  laws.  If  he  fails  to  properly  dis- 
charge his  duties  and  manage  the  affairs  turned  over  to  him,  in 
an  economical  manner,  he  is  liable  to  discharge  the  same  as  any 
executive  of  a  private  corporation. 

It  is  found  much  more  convenient  and  satisfactory  to  trans- 
act business,  filing  requests  and  objections,  with  one  man  in 
authority  who  is  always  on  the  job  and  may  be  reached  within 
five  minutes  at  any  time,  rather  than  search  out  some  council- 
man, who  may,  or  may  not  be,  on  the  proper  committee  to  con- 
sider the  matter  before  presenting  it  at  the  next  meeting  of  the 
Council  for  their  consideration,  subjecting  the  matter  thereby  to 
a  further  delay  incident  to  securing  action  through  their  instruc- 
tions to  the  proper  committee.  In  addition  to  the  speeding  up  of 
action,  in  every  instance,  the  installing  of  sj'stem  in  every  de- 
partment, more  especially  that  of  accounting,  affords  an  absolute 
knowledge  in  every  detail  of  the  city  and  its  affairs  by  the  City 
Manager,  enabling  him  to  conserve  its  resources  in  ways  and  at 
times  where  it  w-ould  not  be  done  by  the  Council  committees ; 
not  only  saving  money  to  the  tax  payers  but  satisfying  them  by 
prompt  and  efficient  service. 

Money  is  not  paid  out  for  bosses  or  commissioners  in  every 
department.  The  City  Manager  superintends  all  of  the  work  of 
the  various  city  departments,  employs  such  help  as  it  needs,  and 
discharges  this  help  when  it  is  seen  that  they  are  not  giving 
the  city  full  value  in  time  and  labor  for  the  pay  they  receive. 

Politics  have  no  place  in  the  scheme  and  as  the  manager's  job 
and  future  depends  essentially  upon  the  results  he  produces,  no 
favors  are  dispensed  as  has  been  the  regular  custom  under  the 
old  council  system,  and  campaign  favors  and  promises  must  be 
paid  in  some  other  manner  than  through  municipal  patronage. 
The  argument  has  often  been  advanced  that  if  a  poor  man  is  pro- 
cured for  manager,  the  plan  will  not  be  a  success,  and  that  you 
cannot  pick  up  a  man  every  day  who  will  prove  a  success  as  city 


158  CITY  MANAGER  PLAN 

manager.  This  is  true  in  the  direction  of  all  affairs  where  the 
services  of  a  manager  are  considered.  Our  large  private  corpora- 
tions cannot  at  all  times  secure  competent  managers  but  that 
does  not  necessarily  prove  that  their  business  is  not  a  good  one, 
or  that  their  system  is  wrong. 

No  one  would  advance  the  claim  that  any  large  private  cor- 
poration could  turn  their  business  over  to  a  new  board  of  direc- 
tors every  two  or  four  years,  as  is  the  custom  in  cities  under  the 
old  plan  of  government.  In  this  city,  new  councilmen  have  been 
elected  about  every  two  years.  The  Water  Department  was 
given  over  to  a  committee  from  that  Council  who  took  full 
charge  of  the  plant,  the  value  of  which  is  one  hundred  thousand 
dollars.  The  fact  that  the  Water  Committee  had  never  had  any 
experience  along  that  line,  had  never  been  inside  of  the  plant 
in  their  lives,  made  no  difference.  What  is  true  in  the  Water 
Department  is  true  in  all  other  departments  of  the  city. 

Any  city  employing  a  city  manager  and  giving  him  authority 
to  manage  the  affairs  of  that  city,  as  the  board  of  directors  give 
the  managers  of  large  corporations  authority,  will  find  at  the  close 
of  the  first  year's  business  he  has  saved  the  city  several  times  his 
salary,  and  the  people  will  have  had  better  service.  The  lowest 
bid  for  a  storm  sewer  built  here  last  year  was  $5,700,  all  bids 
were  rejected  and  the  city  built  the  sewer  for  $4,100,  saving 
$1,600.  Time— six  weeks,  salary  of  City  Manager  $1,700 — twelve 
months. 


ONE  YEAR  OF  CITY  MANAGEMENT  IN 
DAYTON,  OHIO' 

In  Dayton,  Ohio,  a  city  of  130,000  population,  an  effort  has 
been  made  by  altering  the  type  of  government  to  remedy  some 
of  the  more  apparent  deficiencies  common  to  municipal  admin- 
istrations in  this  country.  It  is  believed  that  by  eliminating  par- 
tisanship, concentrating  responsibility,  and  providing  for  per- 
manence in  the  tenure  of  administrative  offices  there  should  be 
a  decided  increase  in  the  efficiency  with  which  public  affairs  are 
conducted.     Dayton  has  not  pinned  its  faith  for  reform  either 

*  By  Lent  D.  Upson,  Director,  Bureau  of  Municipal  Research.  Re- 
printed with  additional  matter  from  the  Real  Estate  Magazine  of  January, 
191S. 


OF  GOVERNMENT  159 

upon  improved  governmental  machinery  or  upon  better  men,  but 
has  endeavored  to  combine  sensibly  these  two  factors. 

Type  of  government 

In  the  Dayton  government  the  legislative  power  resides  in  a 
commission  of  five,  elected  at  large  on  a  non-partisan  ticket. 
This  commission  has  all  the  powers  which  formerly  resided  in 
the  city  council.  Their  control  of  the  city  budget  is  in  unusual 
detail ;  they  pass  improvement  ordinances ;  they  enact  police 
regulations,  which  in  Dayton  as  in  most  cities  are  concerned 
with  muzzling  dogs  and  the  preventing  of  "jay  walking,"  and 
finally  they  appoint  a  city  manager  or  general  head  of  depart- 
ments. 

All  administrative  functions  are  delegated  to  this  city  man- 
ager, appointed  for  an  indefinite  term ;  trained  for  his  particular 
job;  and  upon  whom  is  placed  the  responsibility  of  securing  an 
economical  and  efficient  government.  He  is  purely  an  adminis- 
trative ofiicer  with  administrative  functions  only. 

Frankly,  his  position  is  predicated  on  the  assumption  that 
while  every  American  citizen  is  capable  of  governing  himself, 
not  every  citizen  is  capable  of  being  elected  to  and  administer- 
ing the  office  of  city  engineer,  city  physician,  city  attorney,  city 
bridge  builder  or  city  chemist.  These  positions  have  nothing 
whatever  to  do  with  the  policies  of  city  government,  and  if  the 
public  money  is  to  bring  a  maximum  of  results,  these  jobs  must 
be  filled  for  ability  rather  than  national  political  belief.  The 
rights  of  the  public  are  amply  protected  through  this  organiza- 
tion. Certainly  the  voter  has  little  concern  in  technical  details 
of  how  administrative  policies  are  carried  out. 

Financial  results  secured 

The  results  which  have  been  secured  from  this  separation  of 
legislative  and  administrative  powers,  and  the  correlation  of  de- 
partmental efforts  have  been  notable.  In  the  management  of 
pubhc  funds  alone  new  methods  have  more  than  justified  the 
change.  Public  expenditures  have  been  kept  strictly  within  the 
income,  instead  of  an  annual  deficit  of  $60,000  a  year  which  pre- 
vailed for  the  six  years  previous.  An  accounting  system  is  being 
installed  equal  to  that  of  any  private  concern  in  the  country,  and 
which  will  furnish  a  complete  control  over  both  funds  and  prop- 
erty.   Liabilities  may  not  be  incurred  unless  there  are  funds  for 

11 


i6o  CITY  MANAGER  PLAN 

their  liquidation,  thus  absolutely  preventing  over-drafts.  Funds 
are  appropriated  in  accordance  with  a  detailed  budget  classified 
by  activity  of  departments  and  character  of  expenditure.  Sup- 
plies and  equipment  are  being  standardized,  and  the  purchasing 
division  is  buying  from  the  lowest  and  best  bidder,  and  not  from 
friends  of  the  administration. 

In  place  of  a  record  of  cash  receipts  and  cash  expenditures 
suitable  to  a  cross-roads  grocery,  and  which  prevails  in  practi- 
cally every  municipality,  Dayton  has  made  possible  a  balance 
sheet,  supported  by  distinct  schedules  for  each  public  utility  and 
industry  owned;  provided  an  adequate  control  over  permanent 
property,  equipment  and  stores ;  and  has  a  definite  knowledge 
of  accounts  receivable  and  of  liabilities  incurred,  so  that  no  rev- 
enues may  escape  collection,  nor  appropriations  and  allotments  be 
overdrawn.  Adequate  centralized  accounting  has  insured  the 
payment  of  several  thousand  dollars  of  revenue  formerly  lost; 
made  overdrafts  impossible ;  discovered  errors  of  over  two 
hundred  thousand  dollars  in  sinking  fund  calculations ;  makes 
all  disbursements  by  checks ;  and  controls  the  cost  records  in- 
stalled over  street  repairs,  street  cleaning,  garbage  and  ash 
removal,  etc. 

Purchasing  supplies 

It  is  in  the  purchasing  of  supplies  that  the  most  notable 
savings  have  been  made  and  which  will  amount  to  more  than 
$33,000  on  an  expenditure  of  $200,000.  A  department  may  not 
purchase  until  its  requisition  has  been  approved  by  the  manager, 
and  the  purchasing  agent  does  not  order  until  he  is  assured  by 
the  accounting  division  that  appropriated  funds  are  available  and 
have  been  properly  encumbered  therefor.  Prices  are  ten  per  cent 
to  ninety  per  cent  less  than  those  formerly  paid.  Bills  are  dis- 
counted at  two  per  cent  for  payment  within  ten  days  after  the 
first  of  the  month  following.  Recognizing  that  prices  fluctuate, 
larger  savings  taken  at  random  are:  printed  matter,  $1,000; 
cylinder  oil,  $1,000;  coal,  $400;  meat,  $560;  fire  hose,  $1,600,  etc. 

Public  betterments 

In  public  works  the  handicap  of  inadequate  funds  has  been 
overcome  in  part  by  increased  efficiency.  The  extension  of  ser- 
vice has  been  unusual.  Inspection  of  public  contract  work  has 
been  completely  reorganized  and  contractors  rigidly  required  to 


OF  GOVERNMENT  i6i 

conform  to  specifications.  Street  repairs  are  being  made  en- 
tirely from  public  revenues  with  the  exception  of  a  balance  from 
bonds  issued  in  former  years ;  there  is  almost  double  the  amount 
of  street  cleaning;  streets  in  the  business  section  are  flushed  for 
the  first  time  in  the  history  of  the  city;  collection  of  rubbish 
and  ashes  has  been  resumed  after  a  year  of  lapse  and  made  effi- 
cient, and  reasonably  adequate  garbage  collection  is  to  be  had 
for  the  first  time  in  ten  years.  In  the  division  of  water  every 
effort  has  been  made  to  secure  a  supply  more  nearly  equal  to  the 
demand.  Pumping  machinery  has  been  overhauled,  leaks  investi- 
gated, pressure  increased,  and  in  the  face  of  increased  pumpage 
there  has  been  a  decrease  in  the  amount  of  coal  burned.  A  mu- 
nicipal garage  has  been  established ;  all  cars  are  labeled,  their 
use  placed  under  control,  and  record  of  costs  installed. 

The  mention  of  public  work  improvements  leads  to  a  discus- 
sion of  the  necessity  of  a  program  for  the  future.  In  Dayton  a 
conscientious  effort  has  been  made  to  outline  work  in  many 
directions.  The  water  plans  which  have  been  recently  completed 
will  cover  sixteen  years  of  construction ;  a  sewer  survey  costing 
$30,000  is  under  way;  a  comprehensive  study  of  public  waste 
disposal  has  been  made ;  an  investigation  of  adult  delinquency 
is  being  completed,  and  upon  its  findings  will  be  based  the  future 
correctional  policies  of  the  municipality.  The  administration 
may  change,  and  the  present  appointed  executives  make  way  for 
others,  but  their  successors  will  have  a  definite  plan  for  public 
construction  which  they  must  follow  or  set  aside  only  after  con- 
sideration. They  will  not  be  required  to  go  ahead  on  guesswork, 
or  on  the  plane  of  only  one  or  two  years  anticipated  duration. 

Work  for  public  welfare 

Dayton  has  definitely  provided  in  its  charter  for  a  depart- 
ment of  public  welfare  which  shall  direct  activities  having  to  do 
with  the  social  and  moral  conditions  of  the  citizen — health, 
charities,  recreation,  corrections,  etc.  Civic  progress  through 
this  department  has  been  extraordinary  and  the  administration 
may  lean  most  heavily  for  support  upon  the  results  secured. 
The  health  division  was  studied  and  reorganized.  In  addition 
the  nursing  of  the  Visiting  Nurses  Association  and  of  the  Tuber- 
culosis Society  has  been  brought  under  city  management.  This 
single  control  of  public  nursing  has  resulted  in  an  infant  death 
rate  from  forty  per  cent  to  fifty  per  cent  lower  than  that  in 


i62  CITY  MANAGER  PLAN 

three  years  previous.  The  removal  of  insanitary  conditions ;  the 
regulation  of  vacant  property ;  a  more  careful  inspection  of 
dairies  and  places  where  food  products  are  sold ;  the  stringent 
regulation  of  quarantine ;  and  the  inspection  of  school  children 
who  have  been  exposed  to  contagion  lessened  morbidity  and  has 
reduced  the  death  rate  by  two  points  in  a  thousand,  the  equiva- 
lent of  some  two  hundred  and  fifty  lives.  This  is  notable,  and 
there  is  nothing  of  which  the  administration  in  Dayton  may  be 
prouder  than  the  fiftj-^-five  babies'  lives  which  have  been  saved. 

'The  facilities  for  public  recreation  have  been  extended  far 
beyond  those  formerly  prevailing.  A  self-supporting  public  bath- 
ing beach  has  been  opened,  in  connection  with  which  next  year 
there  will  be  operated  a  municipal  dance  hall  and  restaurant. 
Seventy-five  families  cultivated  community  gardens  last  sum- 
mer ;  there  were  twenty-two  experimental  gardens  for  hundreds 
of  school  children  under  the  supervision  of  an  expert  gardener; 
and  nearly  three  hundred  vacant  lots  were  prepared  as  gardens. 
The  number  of  playgrounds  under  public  supervision  has  been 
doubled,  and  new  equipment  secured  until  there  are  now  thirty- 
five  play  centers  for  young  people. 

In  the  treatment  of  adult  delinquents,  new  policies  are  being 
tried — the  moral  effect  of  clean  clothing  and  plenty  of  baths  has 
been  combined  with  outdoor  labor  which  would  otherwise  have 
gone  undone.  In  frequent  cases  men  and  women  have  been  placed 
on  probation  and  jobs  secured  for  them.  A  municipal  lodging 
house  has  been  established  where  a  half  day's  labor  is  exacted 
for  a  night's  lodging  with  meals.  A  free  legal  aid  bureau  has 
been  established  for  those  who  are  too  poor  to  secure  private 
counsel.  This  division  at  a  cost  of  $625  has  handled  over  seven 
hundred  applications  for  services.  The  city's  prosecutor  on  the 
other  hand  has  done  commendable  work  in  settling  family 
quarrels  and  back  fence  squabbles  without  appeal  to  the  law. 

Many  improvements  planned 

Other  progressive  works  of  this  city  involve  the  regular 
conference  of  department  heads ;  the  gradual  elimination  of 
public  dumps ;  a  thorough  investigation  of  the  safety  department 
and  pension  funds ;  the  beginning  of  a  school  for  police  and 
firemen;  the  purchase  of  motor  fire  apparatus;  the  establishment 
of  a  municipal  garage ;  a  new  building  code ;  improved  city  car 
service;  a  civic  music  league;  new  traffic  regulations;  efficient 


OF  GOVERNMENT  163 

inspection  of  street  contracts;  the  creation  of  street  oiling  dis- 
tricts and  many  other  worthy  innovations — at  least  to  conserv- 
ative Dayton. 

Costs  involved 

The  tax  payer,  however,  much  as  he  may  approve  these  im- 
provements in  government,  naturally  inquires  as  to  the  increased 
cost.  And  if  economies  have  been  effected,  what  has  been  done 
with  the  savings?  The  operating  revenues  for  the  year  just 
ending  were  $77,709  more  than  for  the  year  preceding.  With 
this  sum,  plus  savings,  the  following  are  a  part  of  the  additional 
services  rendered : 

Ash  and  rubbish  removal.  No  service  in  1913 ;  amount  ex- 
pended in  1914,  $35,000. 

Street  repair.  Increased  this  expenditure  from  income  in 
1914  over  1913,  without  issuing  bonds,  by  $23,000. 

Additional  street  cleaning.  Almost  double  the  1913  appro- 
priation was  allowed  in  1914  by  an  increase  of  $12,500. 

Additional  health  service.  Almost  double  the  1913  appro- 
priation was  allowed  in  1914  by  an  increase  of  $15,000. 

Parks  and  Playgrounds.  Increased  $8,000  in  1914,  doubling 
the  number  of  playgrounds. 

Police  Department.  Increased  $6,700  in  1914  by  the  addition 
of  seven  policemen  and  two  policewomen. 

Continuous  audit.     None  in  1913 ;    1914,  $2,000. 

Purchasing.     None  in  1913;  1914,  $3,900. 

Special  garbage  investigation.     None  in  1913;    1914,  $2,000. 

Free  Legal  Aid.    None  in  1913 ;  1914,  $625. 

Police  and  fire  pensions  fund.  None  taken  from  income  in 
1913;  1914,  $5,6co. 

New  Municipal  Court.     Increased  $19,000  in  1914. 

It  must  be  remembered  that  as  a  result  of  flood  emergency 
bonds,  the  old  administration  operated  certain  departments  for 
several  months  almost  entirely  from  bond  money.  Also  the 
operation  of  restrictive  tax  laws  in  Ohio  has  reduced  municipal 
expenditures  to  a  point  below  that  at  which  adequate  govern- 
ment may  be  secured.  It  is  a  happy  circumstance  that  the  new 
government  was  able  to  secure  a  small  addition  in  revenues,  and 
they  have  rendered  a  more  than  satisfactory  account  of  their 
increased  stewardship.    Lastly,  cheapness  is  no  more  a  criterion 


i64  CITY  MANAGER  PLAN 

of  good  government  than  it  is  of  good  clothes,   good  tobacco 
or  of  good  household  necessities. 

The  government  of  Dayton  is  not  ideal.  Human  frailties, 
local  prejudices,  and  inadequate  funds  will  always  combine  to 
make  that  a  mark  only  to  be  approached.  However,  applying 
any  recognized  tests,  it  has  already  outstripped  in  results  any- 
thing yet  secured  from  commission  government.  Of  even  greater 
value  than  material  progress  is  the  stimulation  of  citizen's  inter- 
est which  has  taken  place.  A  greater  degree  of  accomplishment 
is  being  demanded  of  public  officers  than  ever  before,  and  it  is 
possible  that  in  time  an  efficient  citizenship  will  come  to  take 
the  part  in  government  which  it  is  proper  and  necessary  that  it 
should. 

DAYTON,  OHIO' 

City  Commission 

Regular  meetings.  Fifty-two  regular  meetings  of  the  City 
Commission  were  held  during  the  year.  These  meetings  were 
held  every  Wednesday  morning,  and  being  public  sessions,  citi- 
zens in  greater  or  less  numbers  were  nearly  always  present. 
Nineteen  special  meetings  were  held  and  seventy-two  confer- 
ences were  called,  for  the  consideration  of  problems  as  occasion 
required.  Two  hundred  and  ninety-four  ordinances  were  given 
consideration  during  the  year,  as  well  as  eighty-nine  resolutions, 
fifty-three  of  which  pertained  to  public  improvements. 

Inspection  trips.  The  Commission  took  fifty-five  trips  over 
the  city  during  the  year,  thus  keeping  personally  in  touch  with 
all  proposed  improvements  and  all  construction  work  under  way, 
as  well  as  making  such  other  investigations  as  were  found  advis- 
able. 

City  Planning  Board 

The  Board  was  appointed  by  the  City  Commission  in  1914 
to  carry  out  the  spirit  of  the  charter,  which  allows  the  city  to 
plan  within  the  area  of  the  city  and  three  miles  outside.  The 
Conservancy  Engineers  had  taken  considerable  topography  which 
has  been  added  to,  to  a  considerable  extent,  by  the  work  that 

^  High  Spots  of  accomplishment  as  shown  by  excerpts  from  the  annual 
report  of  City  Manager,  H.  M.  Waite,  for  the  year  1915.  '  (Report  pub- 
lished by  the  City  Commission  June,  19 16.  Copies  may  be  secured  from 
the  Bureau  of  Research,   13  Schwind  Bldg.,  Dayton,  Ohio.) 


OF  GOVERNMENT  165 

these  data  in  the  hands  of  the  city  planning  board,  all  proposed 
new  platting  is  turned  over  to  them  and  passed  upon  before 
adoption  by  the  city.  By  this  means  considerable  changes  have 
has  been  done  by  the  city  engineers  on  the  sewer  survey.  With 
been  made  which  will  obviate  in  the  future  the  same  unfortunate 
dead  end  streets  that  we  have  at  the  present  time. 

It  is  hoped  by  the  City  Planning  Board  that  they  may  event- 
ually carry  on  the  topography  surveys  beyond  the  city  limits,  and 
submit  to  the  Commission  a  complete  plan  for  all  future  annex- 
ations and  developments. 

This  Board  has  been  working  on  general  boulevard  connec- 
tions, park  lay-outs,  and  a  civic  center.  This  takes  considerable 
work  and  thought,  so  that  the  plans  of  Dayton  for  one  hundred 
years  from  now  can  be  laid  out  and  lived  up  to  as  the  city  can 
afford  the  expense. 

Civil  Service  Board 

Uniform  salaries  for  uniform  work.  All  positions  having 
similar  duties  in  the  city  government  should  have  the  same  rate 
of  compensation,  and  this  salary  should  be  an  adequate  one, 
based  upon  the  importance,  difficulty,  responsibility  and  value  of 
the  work.  To-day  unsatisfactory  and  unequal  conditions  exist 
in  numerous  instances. 

In  order  to  standardize  positions  and  salaries,  by  describing 
the  duties  of  all  positions  and  determining  what  salaries  each 
should  receive,  the  Board  made  a  systematic  and  thoro  investi- 
gation of  compensation  paid  by  other  municipalities  and  by  local 
concerns  having  analogous  positions.  When  these  facts,  as  well 
as  other  considerations,  are  applied  to  Dayton,  recommendations 
will  be  presented  to  the  City  Commission. 

Efficiency  records  kept.  Daily  efficiency  records  are  kept  of 
employes  in  every  city  department,  and  a  monthly  report  is  sub- 
mitted by  the  department  head  to  the  Civil  Service  Board.  These 
efficiency  records  are  based  upon  the  quality  and  quantity  of 
work,  discipline,  attendance,  initiative  and  the  ability  of  the 
individual  in  his  relations  with  the  public.  These  records  are  of 
value  in  securing  the  best  service  from  the  individual  and  are 
one  of  the  factors  in  determining  promotion.  During  the  year 
14  efficiency  examinations  were  given  to  521  persons.  The  Board 
compiles  efficiency  records  for  the  year  for  every  department 
and  each  employe  is  notified  of  his  annual  record. 


i66  CITY  MANAGER  PLAN 

Office  of  the  City  Manager 

City  Manager  the  main  spring.  The  beginning  and  the  end 
of  all  municipal  administrative  matters  are  vested  in  the  City 
Manager.  In  the  holding  of  staff  meetings  once  each  week,  the 
Manager  outlines  with  his  five  directors  all  policies ;  intricate 
questions  are  decided,  grievances  are  disposed  of,  and  decisive 
action  in  regard  to  various  administrative  matters  is  determined. 
This  is  a  co-operative  adjunct  which  facilitates  matters  and 
brings  forth  results.  From  eight  to  eleven  o'clock  each  morning, 
the  Manager  is  sought  by  Departmental  Heads  to  determine 
various  questions  that  have  come  up,  and  which  are  solely  within 
his  power  to  decide.  Some  of  these  matters  are  of  great  con- 
sequence, and  upon  the  Manager's  decision  hinges  the  expendi- 
ture of  thousands  of  dollars  of  the  public  funds.  The  Manager 
attended  all  meetings  of  the  Commission  in  1915,  besides  holding 
a  weekly  conference  with  this  body  each  Monday  afternoon,  and 
making  a  weekly  trip  with  the  members  of  the  Commission  over 
public  improvements  in  the  course  of  construction. 

Controlling  the  public  purse.  The  City  Manager  is  held  di- 
rectly responsible  for  all  expenditures  of  money.  Besides  fixing 
the  salaries,  he  prepares  all  appropriations.  In  compiling  the 
annual  tax  budget  and  also  the  annual  appropriation  budget,  the 
City  Alanager  has  the  biggest  job  of  any  one  man  in  the  city 
government.  In  1915,  facing  a  shortage  in  tax  revenues  of 
$167,000  to  meet  the  needed  expenses  of  the  municipality,  the 
City  Manager  was  confronted  with  the  gravest  financial  crisis 
in  the  city's  career.  In  1914  he  cut  the  estimated  expenses  of 
the  city  $45,000  to  keep  within  the  cash  income,  and  in  1915  he 
cut  the  estimate  $70,000.  This  work  was  done  in  191 5  upon  the 
budget  to  operate  the  city  for  1916.  The  fixing  of  these  two 
budgets  being  the  most  vital  operation  in  the  affairs  of  municipal 
government,  it  naturally  consumes  great  periods  of  times,  study 
and  forethought.  The  complexity  of  the  present  tax  law  is  such 
that  the  duties  devolving  upon  the  City  Manager  in  these  in- 
stances are  most  responsible.  In  detail,  down  to  the  merest  cent 
nothing  can  be  overlooked.  When  these  budgets  are  compiled, 
the  adding  to  an  appropriation,  or  the  cutting  down  of  an  esti- 
mate upon  which  the  appropriations  are  based,  is  so  vital  to  the 
city's  interest,  that  the  City  Manager  must  be  fore-armed  with 
all  the  necessary  data  before  he  can  utilize  his  pencil  in  the 
final  shaping  of  these  two  budgets. 


OF  GOVERNMENT  167 

Municipal  exhibit  held.  The  City  co-operated  with  the 
Schools  and  County  in  putting  on  a  Municipal  Exhibit,  under 
the  auspices  of  the  Bureau  of  Municipal  Research.  This  ex- 
hibit was  one  of  the  best  of  its  kind  ever  given  in  any  city.  It 
was  held  at  Memorial  Hall,  October  nth,  thru  the  i8th,  and 
proved  a  highly  educational  affair.  By  means  of  charts,  photo- 
graphs and  physical  displays,  the  scope  and  method  of  operation 
of  every  city  department  were  shown  explicitl3^  The  show  cost 
$1,500  and  had  an  attendance  of  nearly  45,000,  including  8,700 
school  children.     The  cost  was  borne  by  public-spirited  citizens. 

The  open  sesame  for  co)nplaints.  Not  least  among  the  Man- 
ager's troubles  are  the  daily  complaints  received  in  his  office. 
While  each  of  the  individual  departments  must  spend  a  good 
deal  of  time  in  answering  complaints  from  the  public,  the  bulk 
is  transmitted  thru  the  office  of  the  City  Manager.  While  the 
minor  complaints  are  handled  by  the  secretary  in  his  office,  the 
larger  and  more  serious  are  always  taken  up  direct  with  the 
City  Manager.  The  public  seems  to  demand  the  ear,  time  and 
talents  of  the  City  Manager.  Over  12,000  people  last  year  talked 
with  the  City  Manager  on  matters  ranging  from  minor  com- 
plaints to  those  of  serious  character.  The  slogan  of  the  City 
Manager  is,  "Action  is  the  keynote  of  good  government." 

The  City  Manager  and  the  school  children.  The  City  Man- 
ager has  long  realized  that,  if  the  Commission  Manager  form 
of  government  is  the  ideal  success  it  ought  to  be,  the  citizenship 
of  Dayton  must  understand  its  government.  In  the  study  of 
civil  government  in  the  public  schools,  there  has  been  compiled  a 
history  of  Dayton  which  is  to  be  a  standard  text  book  in  the 
Daj'ton  public  schools  in  matters  of  local  history.  In  order  to 
acquaint  the  rising  generation  with  the  plans,  purposes  and  ideals 
and  the  results  to  be  achieved  for  the  people  of  Dayton  under 
the  present  form  of  government,  however,  the  City  Manager  has 
taken  the  position  that  not  onl}-  should  the  adult  citizen  be  edu- 
cated, but  school  children  should  be  thoroly  acquainted  with  all 
the  essentials  of  Civic  Management.  To  that  end,  he  has  given 
quite  a  few  talks  during  the  past  j'car  before  the  various  grades 
in  the  public  schools,  and  during  the  year  1916  intends  to  offer 
a  cash  prize  to  the  school  child  writing  the  best  essay  on  the 
achievements  of  the  Commission  Manager  form  of  government. 

Street  car  re-routing  planned.  In  an  effort  to  provide  better 
transportation  facilities  on  all  car  lines  thruout  the  city,  the  City 


i68  CITY  MANAGER  PLAN 

Manager  sought  from  the  several  companies  a  re-routing  of 
their  lines  and  cars.  The  street  car  traffic  is  a  big  problem  in 
Dayton,  by  reason  of  the  existence  of  franchises  to  seven  dif- 
ferent companies,  some  of  which  have  several  lines  and  divi- 
sions. The  views  of  the  City  Manager  are  looked  upon  favorably 
by  the  car  companies,  which  have  named  a  special  committee 
to  work  out  an  entirely  new  re-routing  plan. 

Bond  issue  campaign  successful.  One  of  the  most  significant 
events  during  1915  was  the  favorable  vote  of  the  people  upon 
nine  bond  issues,  aggregating  $1,053,000  for  permanent  public 
improvements,  the  benefits  of  which  will  affect  every  section  of 
the  city.  The  issues  were  for  extensive  street  and  sewer  con- 
struction, two  new  fire  stations  and  motorized  apparatus,  storm 
water  sewers,  improving  playgrounds  and  parks,  providing  a 
new  work  farm,  improving  the  central  market  house,  and  build- 
ing a  new  bridge  at  Keowee  Street. 

Why  the  people  were  asked  to  vote  these  improvements. 
The  existing  tax  laws  of  Ohio  require  that  the  annual  interest 
and  sinking  fund  to  retire  at  maturity  the  bonds  issued  by  the 
Commission  must  be  taken  out  of  revenues  coming  to  the  City 
out  of  its  share  of  a  I  per  cent  tax  on  property.  All  operating 
revenue  from  taxes  must  also  come  from  this  i  per  cent  tax; 
therefore,  every  issue  of  bonds  authorized  by  the  City  Com- 
mission reduces  the  amount  of  money  available  for  operating 
the  city  departments.  If  the  Commission  had  voted  these  bonds 
without  the  authority  of  the  people,  it  would  have  crippled  the 
city  service  to  a  dangerous  degree. 

An  additional  section  of  the  law,  however,  provides  that  by  a 
two-thirds  affirmative  vote  of  the  people  the  City  Commission 
may  issue  bonds  that  take  the  annual  interest  and  sinking  fund 
requirements  from  outside  the  I  per  cent  tax.  Therefore,  the 
people  were  asked  to  express  themselves  upon  the  matter  of 
these  improvements — the  government  was  carried  back  to  the 
people. 

Endorsement  of  the  administration.  All  the  newspapers  sup- 
ported the  issues,  and  all  the  civic  organizations  approved  and 
worked  for  the  issues.  The  City  Manager  and  other  officials 
conducted  an  educational  campaign  for  two  months  prior  to  the 
election,  explaining  the  necessity  of  voting  for  these  improve- 
ments. The  people  manifested  their  endorsement  of  the  admin- 
istration's program  by  passing  all  nine  bond  issues  by  over  the 
necessary  two-thirds  majority. 


OF  GOVERNMENT  169 

Department   of  public  service 

Eight  hour  day  for  labor.  The  eight  hour  day  for  laborers, 
introduced  by  this  administration  in  1914,  was  continued  this 
year  and  affects  this  department  more  than  others  because  of  the 
large  amount  of  laborers  employed.  The  eight  hour  law  became 
effective  this  year  for  employes  working  for  contractors  on  pub- 
lic improvements.    As  a  result  the  cost  to  the  city  will  be  higher. 

Planning  sewers  for  future  needs.  A  complete  topographical 
study  of  the  city  was  made  and  an  investigation  of  the  condition 
of  all  sanitary  and  storm  water  sewers  reported.  A  plat  of  the 
200  miles  of  sewers  and  100  miles  of  drains  was  completed,  and 
over  half  of  the  final  maps  are  now  available.  These  maps  will 
prove  of  inestimable  value  in  city  planning,  establishing  grades, 
laying  out  plats,  and  all  other  activities. 

Three  new  bridge  plans  completed.  Detailed  plans  and  speci- 
fications on  the  Fifth  Street,  Webster  Street  and  Keowee  Street 
bridges  were  prepared,  preliminary  to  advertising  for  bids  for 
their  construction.  The  actual  work  of  building  these  three 
structures  had  to  be  held  up  pending  decisions  on  Flood  Preven- 
tion. Particular  attention  is  being  given  to  making  these  bridges 
of  artistic  design.  The  Stewart  Street  bridge  approach  was 
completed  by  building  a  temporary  bridge  over  the  Canal,  so 
that  this  structure  is  now  open  for  traffic  without  transgressing 
private  property. 

Additional  street  oiling  done.  Three  times  as  many  petitions 
for  the  oiling  of  streets  were  received  in  1915  as  in  1914. 
Thirtj'-six  miles  of  streets  were  oiled  as  compared  with  11  miles 
the  year  before.  The  contract  price  for  the  heavy  asphaltic  oil 
used  was  reduced  from  $3.25  in  1914  to  $1.95  in  1915.  The  cost 
of  this  work  is  paid  by  special  assessment  on  the  abutting  prop- 
erty. 

City  markets  enlarged.  The  Wayne  Avenue  market  area  in 
the  rear  of  the  Market  House  was  paved  and  additional  lighting 
provided,  for  the  convenience  of  both  the  public  and  those 
occupying  these  spaces.  The  interior  of  Central  Market  House 
was  renovated  and  decorated,  and  a  new  floor  laid,  at  a  cost  of 
$3,700.  The  city  sealer  was  given  quarters  on  the  ground  floor. 
By  an  ordinance  passed  during  the  year  leases  on  curb  spaces 
are  now  prolonged,  resulting  in  great  convenience  to  both  tenants 
and  patrons.      Additional   free  market   space   was  provided   on 


170  CITY  MANAGER  PLAN 

Fifth  Street.    A  children's  market,  for  the  sale  by  them  of  their 
own  produce,  was  established  on  Fourth  Street. 

Garbage  collection  increased.  The  best  indication  of  im- 
proved service  given  in  garbage  collection  is  the  falling  off  of 
complaints.  Additional  territory  has  been  covered,  while  the  total 
cost  of  collection  has  been  reduced.  A  regular  service  every 
week  is  now  given  for  the  entire  city,  except  the  downtown  hotel 
district,  where  the  service  is  daily.  The  excellent  results  given 
by  this  branch  of  service  are  shown  below : 


Year                            Tons  Collected 

Cost  Per  Ton 

1912                                     14,800* 

$2.60 

1913                                     14,900* 

2.49 

1914                                    12,600* 

1.82 

1915                                      15,500 

1.60 

One-half  or  more  water. 

New  garbage  reduction  plan  built  and  operating.  A  garbage 
reduction  plant  was  constructed  during  the  year  at  a  cost  of 
$59,000.  It  is  located  at  Whitfield,  about  6  miles  southwest  of 
the  city,  and  was  placed  in  operation  in  December,  so  that  all 
of  the  city's  garbage  is  being  reduced.  The  sales  of  the  by- 
products will  pay  for  the  operation  of  the  plant,  interest  on 
investment,  depreciation,  and  also  leave  a  substantial  profit. 
Formerly  there  had  been  no  return  from  garbage,  as  the  city 
had  been  burying  it,  and  consequently  there  was  no  revenue 
whatever  in  connection  with  this  service. 

Ash  and  rtibbish  collection  improved.  The  territory  covered 
by  the  collectors  has  been  enlarged  and  collections  are  made 
every  two  weeks  thruout  the  entire  year,  instead  of  every  fourth 
week  as  prevailed  during  part  of  1914.  There  was  no  collection 
whatever  in  1913.  Reduced  costs  are  also  shown  in  this  service 
— an  average  of  38  cents  per  cubic  yard  for  1915  as  against  43.8 
cents  in  1914.  "Spring  Clean  Up  Day"  was  handled  by  this 
bureau,  the  city  being  divided  into  several  sections,  each  having 
a  definite  collection  day,  and  the  result  being  the  removal  of  a 
very  large  amount  of  rubbish.  Reduced  costs  of  conducting  this 
activity  will  be  possible  thru  the  taking  over  of  many  horses 
from  the  division  of  fire,  due  to  motorization.  •  Fourteen  ash 
wagons  each  of  5  cubic  yards  capacity  were  also  purchased. 
This  Bureau  now  has  31  head  of  horses. 

Additional  ivater  works  supply.     Much  was  done  to  remedy 


OF  GOVERNMENT  171 

the  inadequate  water  service  previously  existing  thruout  the 
cit>'.  All  the  vi^ork  done  and  planned  gave  due  regard  to  a  gen- 
eral plan  of  development  adequate  to  take  care  of  the  future 
growth  of  the  city,  and  all  the  important  work  received  the  ap- 
proval of  the  National  Board  of  Fire  Underwriters.  Tate's  Hill 
Station  was  completed  early  in  the  year,  affording  an  additional 
supply  of  10,000,000  gallons  per  day.  Owing  to  the  wet  season  it 
was  but  little  called  upon,  but  its  value  is  inestimable  in  case  of 
a  big  fire  or  a  dry  season. 

Mileage  of  water  mains  extended.  Twenty  miles  of  water 
mains  were  laid  in  the  first  8  months  of  the  year.  For  the  past 
10  years  Da^ion  has  suffered  from  a  serious  shortage  of  water 
during  the  dry  season.  Its  supply  of  water  for  even  domestic 
purposes  was  wholly  inadequate.  Some  sections  of  the  city,  as 
Dayton  View  and  Edgemont,  were  unable  to  get  water  at  all  on 
some  days  or  at  certain  hours  of  the  day.  This  has  now  been 
overcome  entirely,  and  no  section  of  the  city  suffers  from  the 
shortage  of  water.  The  water  works  system  was  begun  about 
1870,  and  during  the  45  years  of  its  life  about  200  miles  of  pipe 
were  laid  until  1915,  when  in  this  one  year  the  mileage  was 
increased  10  per  cent. 

Examples  of  big  savings.  An  immense  main  was  laid  across 
the  river  just  above  the  Dayton  View  Bridge,  to  increase  the 
water  supply  in  Dayton  View.  This  main  was  finished  in  Sep- 
tember, despite  many  delays  due  to  frequent  rains  and  conse- 
quent rises  of  the  river,  and  when  finally  completed  the  direct 
cost  was  about  18  per  cent  lower  than  the  only  bid  received 
from  contractors  for  the  work.  The  24-inch  main  laid  under  the 
river  just  above  the  Fifth  Street  bridge,  to  give  additional  water 
to  Edgemont,  was  connected  up  in  March.  The  entire  cost  of 
this  extension  was  $3,500,  while  the  lowest  bid  received  from 
contractors  was  $8,000. 

Water  service  planned  for  future  growth.  Comprehensive 
plans  have  been  prepared,  calling  for  improvements  in  the  source 
of  supply  and  in  the  distributing  mains,  in  order  to  care  ade- 
quately for  the  population  of  the  city  when  it  has  grown  to  more 
than  200,000.  Every  piece  of  construction  work  in  the  Division 
of  Water  is  done  in  accordance  with  this  plan,  and  the  best 
engineering  experts  in  the  country  on  the  subject  of  water  sj'S- 
tems  are  consulted  on  it  before  the  work  is  started. 


172  CITY  MANAGER  PLAN 

Department  of  public  welfare 

Prisoners  given  profitable  employment.  A  probation  system, 
entirely  new  in  the  history  of  workhouse  administration,  was 
established  in  April,  191S,  whereby  prisoners  are  secured  work 
in  shops  at  regular  wages.  Their  earnings  are  used  to  support 
their  families,  pay  off  debts,  purchase  clothing,  etc.  No  liberty, 
other  than  the  privilege  of  working  outside  of  the  workhouse, 
is  allowed.  Thirty-six  men  were  put  on  probation  under  this 
plan,  and  only  three  violated  the  confidence.  Four  homes  were 
rehabilitated.  The  total  earning  of  these  men  was  $2,025.70  in 
eight  months. 

Vagrancy  reduced  in  the  city.  The  problem  of  vagrancy 
was  solved  by  requiring  lodgers  in  the  municipal  lodging  house 
to  bathe  and  do  one-half  day's  work.  During  22  nights  in 
December,  1915,  with  bath  and  work  made  cumpulsory,  424  men 
were  housed ;  during  22  nights  in  December,  1914,  without  re- 
quiring bath  and  work,  1,220  men  were  housed.  All  lodgers  with 
a  written  agreement  from  employers  to  provide  them  with  work, 
or  who  presented  time  checks,  were  not  required  to  work  one- 
half  day,  but  were  given  lodgings  two  nights  or  until  earnings 
were  received.  Seven  resident  and  six  non-resident  lodgers  thus 
secured  work  in  the  city  the  second  or  third  day. 

Free  legal  service  to  the  needy.  Legal  advice  and  assistance 
was  given  in  1915  to  863  people  who  were  deserving  but  could 
not  ^fford  to  pay  for  it.  This  service  cost  the  city  $1,222,  an 
average  of  $1.41  per  case.  Much  money  was  saved  the  applicants 
for  aid  as  well  as  the  collection  of  $670  being  effected  by  the 
office  for  those  who  could  not  make  the  settlement  for  them- 
selves. 

Recreation  work  extended.  The  work  done  by  the  city  to 
afford  recreational  privileges  to  the  public  was  more  extensive 
than  ever  before.  At  Bomberger  Park  there  were  conducted 
199  classes  for  men  and  boys,  and  213  classes  for  girls  and 
women ;  the  hall  was  opened  for  dances  thruout  the  entire  sea- 
son ;  13  lectures  and  entertainments  were  given ;  and  a  basket 
ball  league  played  150  games.  The  total  attendance  at  this  park 
was  60,330. 

Playgrounds.  Eighteen  playgrounds  were  operated  for  ten 
weeks  under  the  supervision  of  the  Division  of'  Recreation. 
Thirteen  of  these  were  financed  by  the  Playgrounds  and  Gar- 


OF  GOVERNMENT  173 

dens  Association,  and  the  rest  by  public  funds.  Supervisors  of 
these  playgrounds  were  selected  by  examination,  taken  after  a 
course  of  lectures  in  the  work. 

Play  festival.  For  the  first  time  in  the  history  of  Dayton  a 
magnificent  play  festival  marked  the  close  of  the  season.  Four- 
teen playgrounds  were  represented  by  328  children,  the  children 
being  in  the  costume  of  some  particular  nation,  and  the  festival 
representing  the  folk  games  and  folk  dances  of  fourteen  nations. 

ADiericanisation  Day.  On  July  Fourth,  Americanization  Day 
was  held,  the  Mayor  presiding,  when  formal  welcome  was 
given  to  134  lately  naturalized  foreign  born  citizens  of  Dayton. 
Addresses  were  made  in  several  languages,  and  a  fitting  pro- 
gram carried  out. 

Decreasing  death  rate.  A  fair  measure  of  the  effective  ser- 
vice being  given  the  city  by  this  department  is  indicated  in  the 
death  rate : 

1913  157      per  thousand  population 

1914  13.7      per  thousand  population 

1915  13.007  per  thousand  population 

Saving  babies'  lives.  A  continuous  campaign  to  save  the 
lives  of  babies  in  Dayton,  thru  education  of  the  mother  in  mat- 
ters of  feeding,  dressing  and  caring  for  them,  has  resulted  in  a 
lowering  of  the  rate  of  infant  mortality  from  95.8  per  thousand 
in  1914  to  88.8  in  1915.  This  low  rate  is  equalled  by  few,  if  any, 
cities  in  America. 

Extensive  medical  and  nursing  service.  The  five  district 
physicians  reached  1,601  patients;  conducted  161  clinics;  re- 
sponded to  police  and  emergency  calls;  treated  city  prisoners; 
and  made  838  school  inspections  for  a  total  of  180,062  pupils. 
Four  nurses  employed  bj'  the  city,  and  eight  from  private  funds, 
co-operated  with  the  Division  of  Health  in  making  48,000  calls 
during  the  year.  These  were  public  nursing,  instructional,  pre- 
natal, quarantine,  tuberculosis  and  school  absentee  calls.  The 
City  Laboratory  made  the  necessary  analysis  and  tests,  diph- 
theria cultures  and  other  examinations  in  connection  with  this 
general  health  work  and  the  prevention  of  the  spread  of  disease. 

Department  of  law 

Investigation  of  gas  question.  The  contract  for  gas  street 
lighting  was  taken  to  the  Supreme  Court,  which  determined  that 


174  CITY  MANAGER  PLAN 

the  contract  let  several  years  ago  was  invalid,  and  a  temporary 
arrangement  was  made  with  the  gas  company  until  the  natural 
gas  rate  could  be  adjusted.  The  negotiations  with  the  gas  com- 
pany relative  to  the  rate  for  natural  gas  have  taken  much  time, 
and  resulted  in  an  appeal  to  the  Ohio  Utilities  Commission. 

Ohio  tax  laws  require  close  study.  Difficulties  with  pur- 
chasers of  bonds  of  the  city,  due  to  objections  of  their  attorneys 
to  Daj^on  bonds  because  of  tax  limitations,  called  for  an  exten- 
sive study  of  this  subject,  and  the  adoption  of  the  plan  of  sub- 
mitting bond  requirements  to  the  vote  of  the  people.  The  action 
of  the  County  Budget  Commission  in  reducing  the  city's  portion 
of  the  levy  led  to  a  suit  in  mandamus  against  the  Commission 
in  the  Supreme  Court  of  the  State,  and  resulted  in  a  complete 
adjudication  upon  the  powers  of  the  Commission  by  the  Court. 

Department   of  public   safety 

Educational  society  formed  by  policemen  and  firemen.  A 
society  composed  of  members  of  the  divisions  of  police  and 
fire  formed  an  educational  society,  incorporating  under  the  State 
laws.  The  objects  are  to  advance  the  knowledge  of  the  division 
members  in  their  work,  and  to  effect  a  closer  co-operation  be- 
tween them.  A  Field  Day  was  held  at  the  Fair  Grounds,  which 
netted  about  $3,000,  and  this  money  was  expended  in  sending  a 
traffic  squad  to  Detroit  to  study  traffic  conditions  there.  A 
company  of  17  men  from  both  police  and  fire  divisions  was  sent 
on  a  tour  of  the  large  Eastern  cities,  to  study  general  conditions. 
They  brought  back  much  valuable  information  to  be  applied  to 
Dayton.  A  moving  picture  of  the  work  of  the  divisions  was 
also  prepared  and  paid  for  out  of  these  funds. 

Reorganization  of  the  division  of  police.  In  order  to  effect 
a  more  efficient  force  a  reorganization  of  the  entire  division 
was  made  on  June  i,  assigning  to  each  member  his  proper  duties 
and  fixing  his  authority. 

A  new  and  complete  system  of  reporting  was  introduced  and 
reports  are  now  kept  up-to-date.  The  principal  one  is  the  con- 
solidated daily  report,  which  in  a  concise  form  shows  the  entire 
activities  of  division  for  the  day  previous.  This  report  goes  to 
the  Director  of  the  department  each  morning. 

Provision  was  made  for  the  handling  of  all  complaints,  which 
are  now  recorded  at  any  time  during  the  twenty-four  hours  of 
the  day.     The  entire  time  of  a  clerk  is  devoted  to  this  service, 


OF  GOVERNMENT  175 

and  facilities  are  provided  to  give  any  complaint  the  necessary 
attention  at  once. 

Policewomen.  A  wide  field  of  corrective  work  was  covered  by 
the  two  Policewomen  during  1915.  Their  investigations  involved 
abnormal  domestic  relations  and  girls  and  children  in  danger 
from  immoral  conditions;  supervision  of  dance  halls  and  places 
of  amusement,  and  complaints  against  disorderly  houses.  Spec- 
ial attention  was  given  to  a  strict  enforcement  of  the  city's 
regulations  for  dance  halls  and  the  character  and  behavior  of 
those  attending.  Also  the  youngest  boys  and  girls  who  were 
selling  papers  on  the  streets  were  taken  off.  There  were  1,156 
cases  handled  by  the  Policewomen,  872  representing  family 
work  and  284  probation  cases.  The  large  increase  in  cases  of 
irregular  family  conditions  emphasizes  the  need  for  a  Court  of 
Domestic  Relations. 

Department  of  finance 

Accounting  procedure  improved.  Progress  was  made  in 
arranging  for  monthly  reports  from  the  various  divisions,  which 
are  in  accord  with  the  central  scheme  of  accounting.  Monthly 
statements  of  each  of  the  funds  are  now  prepared ;  and  the 
voucher  system  of  payment  was  improved  to  be  handled  promptly. 

Paymaster  saves  costs  in  paying  wages.  Thru  having  a  pay- 
master travel  around  to  the  various  places  where  labor  is  work- 
ing, instead  of  employes  coming  to  the  Treasurer's  offices,  savings 
of  $1,350  were  effected. 

Gasoline  at  9  cents.  An  instance  of  anticipating  market  price 
increases  is  indicated  in  the  year's  contract  for  gasoline  at  g 
cents  per  gallon,  made  in  August,  1915,  and  the  present  market 
price  is  24  cents. 

Centralized  purchasing  and  stores  successful.  Articles  of 
every  description  were  purchased  thru  this  office,  and  5,236 
requisitions  from  all  departments  received.  Specifications  were 
prepared  on  about  twenty-five  of  the  largest  consumed  commodi- 
ties— as  coal,  fire  hose,  stationery,  cement,  paint,  etc.  Thru  the 
establishment  of  a  central  storeroom  largely  used  supplies  were 
purchased  in  great  quantities,  for  delivery  to  the  departments 
as  needed,  and  large  savings  made. 

Sound  financial  condition  of  city.  The  condition  of  the  Gen- 
eral Fund  shows  a  material  improvement  when  compared  with 
the  previous  year.     On  December  31,  1914,  the  net  deficiency  in 

12 


176  CITY  MANAGER  PLAN 

the  General  Fund  amounted  to  $72,122.02.  This  deficit  was 
reduced  to  $24,925.15  in  December  31,  1915.  The  net  bonded 
debt  of  the  city  was  increased  from  $6,463,775.35  to  $6,917,403.55 
or  a  total  of  $453,628.20.  New  bonds  to  the  amount  of  $797,800 
were  issued  during  the  year,  mostly  for  a  Garbage  Reduction 
Plant,  Water  Works  improvements  and  for  Sewer,  Bridge  and 
other  permanent  improvements.  Bonds  to  the  amount  of 
$330,300  were  redeemed  during  the  year. 


GROVE  CITY,  PENNSYLVANIA' 

It  is  a  long  jump  from  Dayton  to  Grove  City,  not  in  distance 
but  in  size.  Grove  City  is  a  town  of  about  five  thousand  people, 
seventy  miles  northwest  of  Pittsburgh  in  Northwestern  Penn- 
sylvania. It  has  always  had  the  name  of  being  a  very  progressive 
little  town.  Some  two  years  ago  Grove  City  had  an  epidemic  of 
typhoid  fever,  the  result  of  lack  of  care  in  the  water  supply. 
Wells  had  been  driven  along  the  creek  bank,  the  casing  got  out, 
and  the  creek  water  got  in.  As  a  result  a  committee  was  ap- 
pointed by  the  council  to  look  up  a  man  for  manager.  I  went 
to  Grove  City  on  the  15th  of  April,  1914,  and  I  have  not  had 
very  much  rest  since.  The  first  thing  I  found  was  that  there 
was  some  opposition,  sly  opposition  working  as  an  undercurrent. 
The  good  people  of  the  town,  business  men  were  with  us;  so 
was  the  Commercial  Club. 

The  Council  in  adopting  this  plan  passed  an  ordinance  which 
they  thought  was  very  good,  but  I  found  they  didn't  make  it 
comprehensive  enough.  They  did  not  put  the  books  of  the  secre- 
tary of  council  in  my  office,  so  that  I  can  not  keep  comparisons 
as  the  secretary's  records  are  kept  entirely  different  from  my 
own.  Mine  are  cost  data.  I  handle  all  the  money,  except  local 
expense,  and  help  expense,  which  I  O.  K.  but  do  not  have  any- 
thing to  say  as  to  its  expenditure. 

The  first  thing  I  ran  up  against  was  a  street  paving  job  for 
which  proceedings  had  been  partly  under  way.  In  the  first  place 
one  of  the  workmen  they  had — the  engineer  they  had  hired  by 
day  work — had  gotten  some  $2,100  out  of  them  for  services, 
mostly  for  paving  and  sewer  work.     They  wanted  rhe  to  do  the 

^  By  J.  S.  Ekey,  City  Manager.  Speech  before  the  City  Managers' 
Association,  November  15-17,  1915. 


OF  GOVERNMENT  177 

work  and  not  give  it  to  a  contractor.  I  wanted  them  to  give  the 
contract.  Finally  I  compromised  and  took  the  short  street,  some 
three  thousand  yards  and  gave  the  longer  street  of  some  twelve 
thousand  yards  out  to  contract,  so  I  had  something  to  compare 
with.  I  finished  the  job  and  my  curb  and  concrete  curb  and 
gutter  by  hand  while  the  contractor  did  his  with  machinery.  I 
beat  him  only  six  per  cent  on  it  which  I  considered  good  con- 
sidering the  length  of  my  job  and  the  fact  I  only  got  organized 
on  it,  you  might  say.  Then  we  took  up  the  water  works  trouble 
and  we  spent  some  thirty  thousand  dollars  in  remodeling  the 
whole  system,  drilling  new  wells,  moving  our  pumps,  putting  up 
standpipe  and  laying  new  mains.  We  saved  four  thousand  dol- 
lars, including  engineering  expenses,  on  that. 

We  are  like  some  others  that  have  reported  here — we  have 
recently  put  in  a  storm  sewer  of  some  1,400  feet,  24  and  20  inch, 
and  I  made  an  estimate  of  what  that  would  cost — $2,100,  and  I 
did  it  for  $1,800.  We  saved  $300  in  addition  to  the  contractor's 
profit  which  is  about  20  per- cent  in  that  country  on  sewer  work. 
I  have  figured  up  the  overhead  .charge  on  the  year's  business, 
practically  putting  in  everything  in  the  office  as  overhead  charge 
so  as  to  satisfy  them  all  and  I  figure  that  my  overhead  charge 
is  about  3  9-10  per  cent.  One  little  comparison  I  had  there  from 
the  year  previous  on  the  paving  work,  I  found  the  engineer  had 
charged  them  at  the  rate  of  4  9-10  per  cent  for  his  services  as 
engineer  on  the  paving  work.    I  figured  2  4-10  per  cent. 

HOW  THE  CITY  MANAGER  PLAN  WORKS  IN 
HICKORY,  NORTH  CAROLINA^ 

Having  so  many  requests  for  information  relative  to  the 
commission  manager  form  of  government  and  how  it  is  working 
here,  I  have  gathered  the  information  generally  requested  in 
concrete  form,  and  herewithin  present  it  with  the  hope  that  it 
will  serve  a  useful  purpose  in  enlightening  the  public  on  the 
commission  manager  form  of  government. 

Hickory  being  one  of  the  first  cities  in  the  country  to  adopt 
this  form  of  government,  it  has  had  the  most  experience,  and  can 
give  some  valuable  suggestions  and  ideas  to  anyone  contempla- 
ting this  form  of  government. 

1  By  S.  C.  Cornwell,  City  Manager. 


178  CITY  MANAGER  PLAN 

I  have  been  an  ardent  advocate  of  the  commission  form  of 
government  for  several  years,  and  have  made  a  special  study 
of  it  and  am  convinced  that  it  is  the  best  and  most  practical  way 
to  administer  the  affairs  of  any  city. 

We  have  a  Mayor  and  four  aldermen  composing  the  City 
Council.  The  Mayor  and  two  aldermen  are  elected  each  year, 
the  Mayor  for  one  year  and  each  alderman  for  two  years,  there- 
by keeping  two  old  men  on  the  board  at  all  times. 

The  City  Manager  is  employed  by  the  Board  and  holds  office 
at  their  pleasure.  He  is  the  administrative  head  of  the  municipal 
government  and  has  charge  over  all  departments. 

From  the  auditor's  statement  it  is  apparent  that  there  has 
been  an  actual  saving  of  $4,394.52  the  first  year  and  $8,043.63  the 
second.  In  addition  to  this  saving,  the  city  expended  nothing  for 
permanent  street  improvement  the  last  year  under  the  old  sys- 
tem, but  under  the  new  it  spent  $7,489.97  the  first  year  and 
$7,817.63  the  second  year.  In  addition  to  all  this,  the  city  has 
given  to  the  graded  schools  $1,500  more  each  year  under  the 
new  form  of  government  and  has  not  increased  the  tax  rate. 

So  you  see  this  form  of  government  has  saved  the  city  in 
actual  cost  $13,384.49  the  first  year  and  $17,361.26  the  second  year. 

We  find  that  under  this  form  of  government  that  collections 
are  much  better  than  under  the  old,  due  to  the  fact  that  every- 
thing is  concentrated  under  one  head. 

This  saving  has  not  been  accomplished  by  cutting  salaries  and 
buying  second  grade  materials,  but  by  increasing  salaries,  and 
buying  the  best  grade  of  material.  Men  have  been  employed 
regardless  of  politics  and  paid  for  what  they  can  do  rather  than 
for  service  to  the  party  at  election  time. 

This  form  is  absolutely  out  of  politics  here,  and  must  be  in 
order  to  make  it  a  success.  As  evidence  of  this  fact,  I  do  not 
know  the  politics  of  all  the  members  of  the  City  Council.  The 
subject  is  never  brought  up. 

Our  charter  here  is  a  model  one.  Of  course  there  are  some 
defects,  but  taken  as  a  whole,  it  is  one  of  the  best  in  the  country, 
and  our  system  of  dividing  the  affairs  of  the  city  into  several 
departments  and  keeping  records  of  each  department  is  an  ex- 
cellent one.  A  complete  itemized  statement  of  all  receipts  and 
disbursements  in  each  department  is  published  each  month. 

For  the  size  (5,000  population)  Hickory  has  a  lower  bonded 
indebtedness    and    more  public    improvements   than   any   city    I 


OF  GOVERNMENT  179 

know  of.  We  have  two  and  one-half  miles  of  Tarvia  Streets, 
seven  miles  of  improved  sand  clay  streets,  and  over  eight  miles 
of  granolithic  sidewalks.  Our  bonded  indebtedness  is  only 
$146,000. 


IOWA  FALLS,  IOWA 

This  is  a  letter  received  from  Mr.  Marriage  in  answer  to  a 
request  of  Mr.  Waite  in  regard  to  his  accomplishments  in  the 
last  year. 

Mr.  H.  M.  Waite,  City  Manager, 
Dayton,  Ohio. 

My  Dear  Sir: — 

Probably  one  of  our  best  showings  has  been  made  in  our 
water  works  department. 

A  year  ago  today  we  were  pumping  on  an  average  about 
15  hours  per  day  to  supply  our  water  patrons  who  at  that  time 
were  not  on  water  meters,  and  our  quarterly  revenue  amounted  to 
about  $1,600. 

Today  we  have  metered  practically  all  of  our  consumers,  and 
are  pumping  only  according  to  daily  reports  filed  with  me  by  our 
engineers,  7J^  hours  per  day,  and  our  quarterly  revenue  for  the 
past  two  quarters  has  been  over  $1,800  each  quarter.  Which 
shows  that  we  have  made  a  big  saving  at  our  pumping  station 
on  fuel,  water,  and  labor,  and  are  getting  $200  more  revenue  per 
quarter  for  half  as  much  pumping  as  a  year  ago. 

By  a  careful  investigation  and  elimination  of  useless  funds 
and  levies,  and  after  making  a  budget  of  our  expenses  for  next 
year,  we  have  cut  our  city  tax  levies  9J/2  mills  this  year,  and  this 
will  give  us  plenty  of  funds  to  carry  on  our  work.  The  levy 
last  year  and  prior  was  43J/2  mills,  this  year  34  mills. 

Since  a  year  ago,  when  this  plan  went  into  effect  we  have 
drained,  graded  and  gravelled  all  of  our  roads  leading  into  the 
city,  as  far  out  as  the  city  limits,  and  where  it  was  almost  im- 
possible to  haul  a  load  a  year  ago,  we  have  fine  gravelled  pikes 
today.  This  is  a  great  item  in  an  agricultural  country  like  ours 
where  the  farmers  haul  their  products  to  town,  and  they  have 
appreciated  our  efforts  really  more  than  our  town  people,  except 
the  autoists. 


i8o  CITY  MANAGER  PLAN 

We  have  put  in  the  past  year,  about  13  blocks  of  asphaltic 
concrete  pavement  in  our  residence  districts  and  will  put  in  the 
coming  year  about  63  blocks  more  of  it.  We  had  in  about  40 
blocks  before  the  management  plan  went  into  operation,  but  it 
was  scarcely  visible  because  they  seldom  cleaned  it,  and  it  became 
coated  with  about  3  inches  or  more  of  dirt  and  mud.  However, 
we  have  a  regular  sweeping  time  with  a  dustless  sweeper  and 
our  streets  are  kept  as  clean  as  any.  Under  this  plan  by  efficient 
management  we  greatly  reduced  our  incidental  expenses  on  our 
paving  work  over  the  incidental  expenses  of  the  paving  work  put 
in  under  the  old  plan,  and  at  that  we  employed  an  expert  inspec- 
tor from  the  Chicago  Paving  Laboratory,  all  the  time  our  as- 
phalt was  being  laid.  For  instance,  without  any  efficient  inspec- 
tion the  incidental  expenses  on  the  paving  put  in  prior  to  our 
administration  amounted  to  10  cents  per  square  yard  of  paving 
laid.  Under  our  new  plan  our  incidentals,  including  an  expense 
of  2j4c  per  square  yard  for  expert  inspection,  totaled  only  6^2 
cents  per  square  yard.  This  incidental  expense  is  for  engineer- 
ing, advertising,  inspection  and  gratings  for  catch  basins,  speci- 
fications and  all  printing. 

In  the  past  year  we  have  put  in  an  extensive  sewer  system 
which  was  practically  all  rock  digging,  with  automatic  flush 
tanks,  and  the  people  who  have  lived  here  for  some  time  and 
watched  the  improvements  constructed  say  that  it  is  the  finest 
piece  of  work  ever  laid  in  this  city. 

I  am  sorry  to  state  that  we  have  some  sewers  that  were  laid 
a  few  years  ago,  that  absolutely  are  N.  G.  Rotten  construction 
work  and  no  proper  inspection  are  the  causes  of  this  condition. 
Some  of  the  sewers  actually  flow  backwards.  That  sort  of  con- 
struction does  not  go  any  longer  here. 

Under  our  ordinance  the  property  owners  have  to  buy  their 
water  meters  from  us,  as  we  will  not  sell  water  except  through 
a  meter,  and  we  consider  the  meter  a  fixture  in  the  house,  or 
part  of  the  interior  plumbing  system. 

We  bought  and  are  buying  an  $8  meter  with  connections, 
reducers,  seals,  sealing  wires  and  sealers,  for  $6  in  a  contract 
to  purchase  400  or  more  of  these  meters.  We  sell  this  meter 
and  all  connections,  etc.,  to  the  consumers  here  for  the  same 
price  we  paid  for  it.  This  naturally  pleases  our  consumers,  as 
under  the  old  form  of  government,  they  only  had  on  about  40 
meters,  which  cost  the  city  $8.60  and  they  made  the  consumer 


OF  GOVERNMENT  i8i 

pay  $10  for  it.  Our  idea  is  to  give  our  people  the  advantage 
of  anything  that  we  can  buy  in  this  Une,  of  the  lowest  price  or 
actual  cost. 


RESULTS  ACCOMPLISHED  IN  JACKSON, 
MICHIGAN^ 

Our  accomplishments  as  I  see  them  are  about  as  follows : 
We  have  taken  city  employees  out  of  politics,  installed  modern 
accounting  systems,  passed  an  annual  budget  on  a  classified  basis, 
installed  careful  cost  accounting  on  city  construction  work, 
separated  the  sinking  fund,  which  was  then  in  the  general  fund, 
and  put  it  to  work,  started  a  waste  water  survey  that  will  save 
about  400,000  gallons  per  day,  started  a  centralization  of  the 
water  department,  bought  coal  on  B.  T.  U.  and  ash  basis,  have 
done  all  purchasing  through  a  purchasing  agent,  taken  all  cash 
discounts,  put  back  over  $300,000  on  tax  duplicate  formerly  ex- 
empted without  legal  reason,  started  a  careful  study  of  the  sewer 
system,  giving  the  city  its  first  decent  repair  of  unpaved  streets, 
installed  a  modern  boulevard  lighting  system  with  peculiarly 
advantageous  contract,  installed  patrol  system  of  repair  on  im- 
proved gravel  streets,  given  food  and  milk  inspection,  centralized 
nursing  organizations,  organized  charities,  poor  relief,  humane 
officer  and  city  health  work  under  one  head  in  the  city  offices, 
given  efficient  sanitary  inspection,  are  making  a  census  of  privies, 
have  made  City  Hospital  and  Training  School  a  model  so  far  as 
its  building  will  allow,  equipped  and  opened  a  tuberculosis  hospi- 
tal, equipped  and  opened  two  branch  libraries,  started  work  on 
a  new  520  acre  park,  are  adding  to  the  fire  department  two  pieces 
of  motor  apparatus  a  year,  are  completing  a  building  code,  are 
giving  efficient  electrical  inspection,  are  inspecting  weights  and 
measures,  have  given  band  concerts  in  parks  each  Sunday 
through  the  summer,  had  a  municipal  4th  of  July  celebration  at 
municipal  expense  with  no  accident  or  fire  alarm  for  that  day,  and 
started  a  simplification  of  existing  ordinances,  bringing  them 
up  to  date  at  the  same  time.  We  found  a  great  many  unclassi- 
fied ordinances.     We  are  getting  everything  on  one  subject  in 

1  By  Gaylord  C.  Cummin,  City  Manager.  Speech  before  the  City 
Manager's  Association  in  convention  in  Dayton,  Ohio,  November  15-17, 
1915. 


i82  CITY  MANAGER  PLAN 

one  division  and  we  are  cutting  the  ordinances  down  to  about 
one-fourth  size  of  the  present  volume. 

We  have  reduced  the  outstanding  debt  $50,000  this  year,  will 
give  $10,000  extra  service  not  figured  in  the  budget,  will  pay  off 
floating  indebtedness  of  $14,000  and  will  end  the  year  with  a 
balance  of  over  $10,000.  We  are  starting  the  next  year  by  reduc- 
ing our  tax  rate  one  mill. 


JACKSON,  MICHIGAN' 

Finance 

A  modern  system  of  accounting  has  been  installed  and  is  now 
in  working  order.  This  is  a  double  entry  system  with  control- 
ling accounts  and  enables  a  close  check  of  receipts  and  disburse- 
ments. This  system  was  based  on  an  audit  and  an  appraisal  of 
the  city's  property. 

The  appropriations  for  1916  were  made  by  a  segregated 
budget,  with  a  uniform  classification  of  expenditures  by  kind, 
to  enable  intelligent  comparison  from  year  to  year,  and  to  enable 
the  people  to  know  how  their  money  is  to  be  spent.  Public 
hearings  were  offered  on  this  budget  before  its  adoption,  but 
unfortunately  a  total  of  only  six  citizens  attended.  I  would 
emphasize  the  importance  to  the  citizens  of  attendance  at  these 
hearings  so  that  full  and  free  discussion  may  be  had  of  the 
appropriations  for  the  ensuing  year. 

Taxes  were  levied  on  the  basis  of  8J^  mills  as  against  9  mills 
the  year  before. 

The  assessing  both  for  taxes  and  special  assessments  was 
centralized  under  a  full  time  assessor,  with  a  great  increase  in 
efficiency. 

$383,000  worth  of  property  exempt  without  legal  reason  was 
returned  to  the  rolls. 

Purchases  of  materials  and  supplies  for  all  departments  were 
made  through  a  purchasing  agent,  resulting  in  great  savings  in 
many  items,  although  the  fullest  results  can  not  be  obtained  until 
a  city  storehouse  is  established,  for  which  at  present  we  have  no 
space. 

1  Report  of  Gaylord  C.  Cummin,  City  Manager,  to  the  City  Commission 
in  1915. 


OF  GOVERNMENT  183 

.[terns  of  considerable  importance  were  purchased  on  careful 
specifications  with  good  results.  A  study  on  the  subject  of  fire 
hose  resulted  in  the  purchase  of  hose  at  52  cents  per  foot  instead 
of  from  80  cents  to  $1.10,  with  no  decrease  in  quality. 

All  cash  discounts  were  taken,  these  discounts  amounting  to 
enough  to  pay  all  the  expenses  of  the  purchasing,  without  count- 
ing the  savings  made  in  reduced  prices,  etc. 

Not  one  dollar's  worth  of  bonds  were  issued  for  any  purpose 
during  the  year. 

$25,000  of  bonds  were  retired,  the  sinking  fund  balance  in- 
creased by  almost  $11,000  and  a  floating  debt  of  about  $20,000 
(due  to  practice  of  paying  the  last  month's  payrolls  and  some  bills 
out  of  new  appropriations)  was  wiped  out,  making  a  total  reduc- 
tion in  the  net  debt  of  the  city  of  about  $56,000. 

As  the  balance  sheet  shows,  the  city  ended  the  year  with  a 
cash  balance  exclusive  of  sinking  and  trust  funds  of  $9,690.53. 
No  bonds  were  issued  for  anj^  purpose  and  as  $78,740.50  was 
paid  for  permanent  assets  out  of  current  revenue,  we  feel  that 
our  financial  condition  is  unusually  good. 

The  sinking  fund  balance  of  $27,799.21  will  be  largely  in- 
vested in  future  bonds  of  the  city  of  Jackson,  thus  making  this 
balance  which  cannot  be  used  except  for  paying  off  the  funded 
debt  of  the  city,  a  source  of  revenue. 

Interest  to  the  amount  of  $2,542.83  was  earned  on  city 
deposits  during  the  year,  these  funds  having  been  previously 
deposited  without  interest. 

The  city  treasurer  was  put  on  a  salary  basis  and  the  fees 
amounting  to  over  $4,000  turned  into  the  general  fund. 

Public  Safety 

A  general  reorganization  both  as  to  men  and  methods  is 
being  worked  out  in  the  police  department  with  a  view  to  in- 
creasing its  efficiency. 

A  general  plan  for  motorizing  the  fire  department  has  been 
worked  out  and  the  first  step  will  be  taken  in  1916  by  the  pur- 
chase of  two  800-gallon  motor  pumpers. 

The  state  law  demanding  every  fourth  day  off  for  firemen 
was  complied  with,  without  adding  any  men  or  weakening  the 
crews. 


i84  CITY  MANAGER  PLAN 

Public  Relief 

The  city  combined  its  relief  work  with  that  of  the  Organized 
Charities  of  the  city  under  a  trained  social  worker,  so  that  there 
would  be  no  duplication  of  work.  All  deserving  persons  received 
adequate  relief,  and  undeserving  persons  were  eliminated  from 
receiving  public  aid.  The  work  was  very  efficiently  done  and  the 
thanks  of  the  city  are  due  the  Organized  Charities  for  their 
co-operation. 

Streets  and  Sidewalks 

The  unpaved  streets  of  the  city  were  found  in  very  poor  con- 
dition, which  was  much  aggravated  by  the  heavy  rains.  Repair 
was  not  so  much  needed  as  construction.  Attempts  to  hold  the 
street  surface  where  built  of  the  native  soil  seemed  waste  of 
money,  and  so  while  efforts  were  made  to  keep  streets  in  a  pass- 
able condition  by  filling  holes,  etc.,  the  main  efforts  were  concen- 
trated on  the  building  of  good  gravel  streets  starting  on  main 
thoroughfares.  Approximately  four  miles  of  these  were  built, 
but  of  course  it  will  take  several  years  to  get  all  the  main  thor- 
oughfares in  decent  condition  as  funds  at  our  disposal  will  not 
allow  any  faster  progress,  but  what  was  done  this  year  will  not 
have  to  be  done  over  next  year. 

The  proper  maintenance  of  these  new  streets  being  absolutely 
necessary  if  adequate  results  are  to  be  obtained,  has  received  a 
good  deal  of  study  and  a  sj^stem  has  been  evolved  which  will 
keep  these  streets  in  good  shape  at  a  minimum  expense. 

Sewers 

The  heavy  rains  of  the  summer  exposed  the  total  inadequacy 
of  the  present  sewer  system  and  after  a  short  preliminary  study 
had  shown  practically  every  sewer  in  the  city  to  be  under  size, 
it  was  determined  to  make  a  careful  study  of  the  whole  situation 
in  order  to  plan  relief  in  such  a  way  that  every  possible  cent  of 
value  in  our  present  investment,  that  can  be  saved,  will  be  saved, 
that  the  relief  measures  will  be  adequate,  and  that  future  exten- 
sions will  fit  in  with  the  general  system.  If  this  had  been  done 
twenty  years  ago,  we  would  have  saved  many  thousands  of  dol- 
lars, and  the  amount  to  be  spent  now  will  be  saved  many  times 
over  in  the  future. 

Studies  will  be  made  at  the  same  time  of  the  sewage  disposal 
problem  and  measures  taken  to  correct  the  grossly  polluted  con- 


OF  GOVERNMENT  185 

dition  of  Grand  River,  our  present  plant  being  both  ineffective 
and  inadequate. 

These  studies  will  be  based  on  a  thorough  topographic  survey, 
which  while  absolutely  necessary  for  this  work  will  be  of  great 
use  both  to  the  city  and  citizens  for  many  other  purposes. 

Water 

The  city  waterworks  is  in  good  financial  shape  as  is  shown 
by  its  earnings  of  $13,589.93  for  1915,  and  it  is  believed  that  a 
considerable  reduction  in  rates  can  be  made  without  injury  and 
without  preventing  such  additions  to  its  physical  equipment  as 
are  necessary  to  put  it  in  efificient  operating  condition. 

This  has  been  a  headless  department  in  the  past  but  after  the 
first  of  the  year  it  will  be  placed  under  the  charge  of  a  competent 
superintendent. 

A  pitometer  survey  is  being  made  for  detection  of  main  leak- 
age and  this  has  developed  the  fact  that  the  valves  are  in  very 
bad  condition,  twenty-six  being  found  closed,  many  of  them  for 
so  long  that  they  were  rusted  shut,  and  besides  there  was  a  large 
number  found  that  were  not  in  operating  condition. 

Plans  are  under  way  for  the  installation  of  much  needed 
reinforcing  mains  to  give  adequate  fire  protection  to  all  parts  of 
the  city,  the  work  to  be  done  in  1916.  Plans  also  are  complete 
for  a  reserve  supply  of  water  of  half  a  million  gallons  to  be 
used  in  taking  care  of  the  peak  load. 

Lighting 

A  modern  system  of  boulevard  lighting  was  installed  on  Main 
street  in  place  of  the  suspended  incandescent  lights,  the  amount 
of  candlepower  on  the  street  increased  by  8,000  c.  p.,  the  lamps 
to  burn  all  night  instead  of  until  11 :30  o'clock,  and  at  a  saving 
of  $720  per  year  for  lighting  the  same  territory. 

The  above  are  the  high  spots  of  accomplishments  in  the  past 
year. 

The  dividends  of  a  municipal  corporation  are  public  service. 

The  city  government  is  now  in  process  of  rebuilding,  and  we 
should  look  for  increasing  dividends  in  the  future. 

More  than  a  dollar's  worth  of  public  service  for  a  dollar  of 
taxes  is  the  goal. 


i86  CITY  MANAGER  PLAN 

FIRST  YEAR  UNDER  PLAN  C  GOVERNMENT 
IN  NEWBURGH,  N.  Y/ 

Report  on  the  first  year  of  commission-manager  government 
in  Newburgh,  submitted  to  the  City  Council  on  Monday  by  City 
Manager  Henry  Wilson,  is  a  record  of  progress  and  achievement, 
of  improvement  and  betterment,  of  economy  and  efficiency  such 
as  must  be  a  source  of  satisfaction  and  pride  to  every  public- 
spirited  taxpayer  and  citizen.  The  report  with  its  facts  and  fig- 
ures proves  beyond  all  question  that  the  most  advanced  form  of 
municipal  government  is  a  success  in  Newburgh.  Plan  C  is  all 
that  and  more  than  was  claimed  for  and  expected  of  it. 

Long  before  the  first  year  was  up  the  City  Manager  was  able 
to  announce  that  the  day  of  a  high  tax  rate  is  past.  Today  he 
reports  the  beginning  of  the  year  with  a  large  cash  balance, 
which  will  greatly  reduce  if  not  obviate  borrowing  for  current 
needs  pending  the  collection  of  taxes.  The  city  instead  of  pay- 
ing interest  to  the  banks  for  borrowed  funds  is  receiving  interest 
from  the  banks  on  its  own  funds.  But  for  a  number  of  unusual 
requirements,  as  set  forth  in  the  Manager's  report,  there  would 
be  a  reduction  in  the  total  of  the  budget  for  the  ensuing  year. 
Projects  are  being  taken  care  of  in  the  budget  which  formerly 
it  was  the  practice  to  issue  bonds  for.  Thus  the  municipality 
with  a  reduced  tax  rate,  compared  with  former  years,  is  cur- 
tailing the  issuance  of  bonds  and  it  also  is  making  most  sub- 
stantial progress  in  retiring  bonds  issued  years  ago,  effecting  a  i 
double  interest  saving  and  permanent  reduction  in  burdens. 

Newburgh  has  a  much  smaller  bonded  indebtedness  than 
either  Poughkeepsie  or  Kingston  and  its  policy  is  to  steadily 
reduce  its  debt.  It  is  building  up  sinking  funds  which  will  take 
care  of  bonds  as  they  fall  due  and  will  endeavor  to  avoid  a 
refunding  of  any  obligations,  this  plan  being  wasteful  and  im- 
posing on  taxpayers  a  large  interest  charge. 

The  gratifying  financial  showing  under  plan  C  is  not  the 
result  of  curtailment  of  any  necessary  expenditures.  The  past 
year  has  been  notable  for  the  improvements  made  and  the  ex- 
tension and  betterment  of  service  effected.  Economy  has  come 
from  the  application  of  strict  business  methods  in  every  depart- 
ment of  the  government.     The  municipality  is  being  conducted 

*  Reprinted  from  The  Newburgh  Daily  News,  January  9,  19 17. 


OF  GOVERNMENT  187 

much  as  a  successful  large  business  corporation  is  conducted, 
with  responsibility  centralized,  capable,  ready  and  resourceful  and 
actuated  by  only  one  consideration,  the  best  interests  of  the  city 
and  its  people. 

Splendid  as  are  the  first  year's  results,  they  are  only  the  be- 
ginning; of  what  may  be  looked  forward  to  as  one  of  the  best 
governments  if  not  the  best  government  of  anj'  municipality  in 
the  country.  As  methods  are  perfected  and  new  problems  are 
taken  up  and  solved,  Newburgh's  government  will  advance  to 
higher  standards  of  efficiency  and  economy.  Newburgh  will  be 
in  the  front  rank  in  improvements ;  it  will  be  famed  for  its  pub- 
lic advantages,  finely  paved  and  shaded  streets  and  beautiful 
parks ;  and  it  will  be  noted  for  its  comparatively  low  bonded 
indebtedness  and  tax  rate.  It  will  grow  rapidly  in  industry 
and  population. 

The  City  Manager's  report  should  be  read  in  full  by  every 
citizen.  No  more  interesting  and  illuminating  municipal  docu- 
ment has  ever  been  presented  in  this  city. 

NEWBURGH,  NEW  YORK' 

Outstanding  Features  of  the  Report  of  City  Manager   IVilson 

Tax  rate  for  this  year  $2.69,  is  the  lowest  in  years. 

Balance  in  city  treasury  at  present,  $110,952.70  probably  the 
highest  sum  in  city's  history. 

Balance  in  Sinking  Fund,  in  addition  to  foregoing,  $65,963.96. 

Probability  that  it  will  not  be  necessary  to  borrow  money  in 
anticipation,  with  resultant  saving  of  $2,500  in  interest. 

City  bonds  paid  last  year  $68,744.34. 

Placed  in  sinking  fund  $29,676.43,  to  provide  for  payment  of 
future  bonds. 

Total  reduction  in  city's  debt  during  the  year,  $98,420.77. 

Balance  in  water  department  at  close  of  year,  $19,303.57. 

Cost  of  tarvia  on  streets  5^4  cents  a  lineal  foot,  much  less 
than  the  cost  of  sprinkling. 

Unusual  expenses  for  year,  which  could  not  be  anticipated, 
but  which  were  paid  from  current  funds  $26,111. 

Presenting  the  report  of  his  stewardship  after  one  year  under 
Plan   C   form   of  government  yesterday   afternoon   Dr.   Henry 

*  From   The  Newburgh  Daily  News,  January  9,    igi7. 


i88  CITY  MANAGER  PLAN 

Wilson,  the  city  manager,  read  a  document  which  was  heard 
with  more  interest  than  has  ever  been  accorded  the  annual  re- 
port of  a  Newburgh  official ;  and  it  is  only  mildly  stating  the 
fact,  that  when  Dr.  Wilson  had  completed  his  exposition  of  the 
city's  status,  had  told  of  the  results  and  economies  effected,  and 
had  outlined  the  condition  of  affairs  and  the  accomplishments  of 
the  year,  he  had  a  surprised  and,  on  the  whole,  a  most  delighted 
audience. 

The  most  casual  student  of  local  affairs  could  not  have  failed 
to  recognize  an  increased  efficiency  in  the  city  government  in  the 
ordinary  conduct  of  business ;  but  no  one,  aside  from  the  mem- 
bers of  the  City  Council,  was  quite  prepared  to  hear  what  the 
City  Manager  had  to  say.  The  most  friendly  and  hopeful  critic 
of  the  administration  had  not  expected  results  so  great;  the 
indifferent  were  raised  from  their  indifference,  and  the  captious 
and  unfriendly  critics  were  absolutely  silenced.  If  there  were 
any  present  who  went  to  scoff,  they  remained  to  praise. 

Excerpts  from  the  City  Manager's  First  Annual  Report 
To  the  Honorable  Council  of  the  City  of  Newburgh. 

This  being  the  first  annual  report  rendered  under  the  new 
form  of  municipal  government,  more  than  usual  interest  will 
necessarily  be  attracted  to  it.  Changing  from  one  form  of  gov- 
ernment to  another  naturally  requires  time  before  the  new  is  in 
full  effect;  but  the  experience  of  the  past  year  has  demonstrated 
that  the  commission-manager  plan  is  ideal  for  the  administration 
of  the  city's  affairs,  and  the  year  191 7  will  find  the  new  modus 
operandi  in  full  operation,  and  the  results  are  bound  to  prove 
satisfactory. 

CITY   FINANCES 

The  new  system  of  accounting,  based  on  an  audit  by  expert 
accountants  and  an  appraisal  of  the  city's  property,  enables  a 
close  check  on  receipts  and  disbursements,  and  a  true  estimate 
of  the  financial  status  of  the  city.  The  appropriation  for  1916 
was  made  with  a  uniform  classification  of  expenditures  to  per- 
mit intelligent  comparison  from  year  to  year,  and  enable  the 
people  to  know  how  their  money  was  spent. 

The  administration  takes  a  pardonable  pride  in  the  fact  that 
the  financial  statement  shows  the  largest  amount  in  cash,  or  its 
equivalent,  on  hand  at  the  end  of  any  year  in  the  history  of  the 


OF  GOVERNMENT  189 

city,  amounting  to  $110,95270,  exclusive  of  the  $65,963.96  in  the 
sinking  fund,  but  incUiding  the  Water  Department  balance. 

TAX  RATE  LOWEST  IN  YEARS 

This  cash  balance  has  permitted  of  a  substantial  reduction 
in  the  amount  of  the  191 7  budget,  and  brings  the  tax  rate  for 
the  year  down  to  $2.69  per  $100.  Starting  the  year  with  this 
amount  of  funds  available  may  make  it  unnecessary  to  borrow 
money,  as  usual  heretofore,  thereby  saving  the  city  about  $2,500 
interest. 

CITY    BOND    ACCOUNT 

City  bonds  to  the  amount  of  $68,744.34  were  paid  during 
the  year,  and  the  sum  of  $29,676.43  was  placed  in  the  sinking 
fund,  making  a  total  reduction  in  the  city's  indebtedness  of 
$98,420.77  during  1916. 


DEPARTMENT   OF    WATER    SUPPLY 

The  revenues  of  the  Water  Department  for  the  year 
amounted  to  $64,557.87.  There  were  water  bonds  to  the  amount 
of  $13,250  redeemed  during  the  year,  and  the  sum  of  $17,621.50 
paid  out  for  interest  on  water  bonds. 

By  a  careful  and  economical  administration  of  this  depart- 
ment, we  have  accumulated  a  balance  of  $19,303.87. 


BEAUTIFICATION   AND    MAINTENANCE  OF   STREETS 

Special  attention  is  being  given  to  the  improvement  of  the 
appearance  of  our  city  streets  by  tree  planting,  and  a  number  of 
Norway  maples  have  been  set  out  this  fall.  This  work  will  be 
continued  in  the  spring,  and  all  who  desire  trees  in  front  of 
their  properties  along  city  streets,  will  be  accommodated  free  of 
cost.  This  plan  of  tree  planting  is  sure  to  result  in  enhancing 
the  beauty  of  our  streets  and  add  to  the  attractiveness  of  our 
city. 

There  has  been  considerable  effective  work  done  on  our  city 
streets,  including  the  permanent  improvement  of  Mill  Street 
and  the  resurfacing  of  Gidney  Avenue  and  several  other  out- 
lying  thoroughfares    hitherto    neglected.       Several    new    sewers 


igo  CITY  MANAGER  PLAN 

were  built  during  the  year  and  a  number  of  needed  silt  basins 
installed. 

***** 

The  proper  maintenance  of  the  dirt  and  macadam  streets  is 
absolutely  necessary.  The  system  evolved  of  treating  them  with 
oil  and  tarvia  has  resulted  in  producing  a  surface  on  our  streets 
that  has  caused  favorable  comments  from  all  who  visit  us. 
This  class  of  improvement  is  effected  at  a  minimum  expense  to 
those  who  are  benefitted,  costing  about  5J^  cents  per  running 
foot  to  each  property  owner  on  the  street  so  treated — less  than 
it  would  cost  for  sprinkling. 

IMPROVED   STREET   ILLUMINATION 

The  installation  of  the  modern  incandescent  street  lamps  for 
the  old  style  arc  lamps,  by  the  Central  Hudson  Gas  &  Electric 
Company,  has  made  a  great  improvement  over  the  former  sys- 
tem of  street  illuminating.  The  result  is  a  much  more  brilliant 
light,  which  adds  very  materially  to  the  appearance  of  our  city 
streets  at  night  time.  This  work,  which  involves  an  expenditure 
of  many  thousands  of  dollars,  is  being  done  without  cost  to  the 
city  or  any  increase  in  the  rates  paid  for  the  old  service. 


HEALTH    DEPARTMENT 

The  efficiency  of  our  Health  Department  has  given  us  an 
enviable  reputation  throughout  the  state. 

During  the  year  the  poliomyelitis  epidemic  taxed  its  service 
to  the  limit.  While  Newburgh  was  considered  a  danger  zone, 
owing  to  its  being  a  great  excursion  center,  the  efforts  of  our 
Health  Department  resulted  in  safeguarding  our  people  against 
this  dreaded  scourge  to  the  extent  that  only  1 1  cases,  6  of  which 
were  extremely  mild  in  form,  appeared  in  our  city,  while  the 
surrounding  towns  and  villages  were  badly  afflicted.  The  work 
done  by  our  Health  Department  was  of  a  character  to  elicit 
special  commendation  and  praise  from  the  State  Health  Depart- 
ment in  Albany,  and  reflects  credit  which  should  not  be  lightly 
forgotten  by  our  people.  It  is  complete  in  its  several  branches 
and  is  equipped  with  a  first  class  bacteriological  department. 


OF  GOVERNMENT  191 

The  dividends  of  a  municipal  corporation  are  realized  in 
effective  public  service.  More  than  a  dollar's  worth  of  public 
service  for  each  dollar  of  the  taxes  is  the  goal. 

In  conclusion  I  wish  to  express  to  the  gentlemen  of  the 
Council  my  sincere  thanks  for  their  hearty  co-operation  and 
assistance,  without  which  results  would  be  impossible,  and  ex- 
tend to  them  sincere  congratulations  on  having  achieved  a  suc- 
cess in  the  first  year  of  the  commission-manager  form  of  gov- 
ernment unequalled  by  any  other  city  in  the  United  States 
administered  under  that  plan. 

From  every  section  of  the  country  come  reports  of  suc- 
cess under  city  managership,  but  it  remained  for  Newburgh  to 
achieve  results,  as  shown  by  our  financial  statement,  that  out- 
class all  other  cities  to  a  degree  that  does  not  even  admit  of  com- 
parison, our  cash  surplus  exceeding  the  total  yearly  expenditures 
of  many. 

Henry  Wilson, 

City  Manager. 


NORWOOD,  MASSACHUSETTS' 

Norwood  is  a  town  of  between  eleven  and  twelve  thousand 
population  about  twelve  miles  out  of  Boston.  We  work  under 
the  old  town  meeting  New  England  charter.  I  have  worked  in 
a  good  many  cities  and  I  thought  the  scheme  was  rather  clumsy 
at  first  but  it  is  very  good.  Our  biggest  saving  has  been  in 
combining  departments,  for  instance,  fire,  water  and  highway 
departments,  taking  them  away  from  three  separate  superin- 
tendents and  putting  them  under  one  superintendent  of  public 
works,  and  we  have  combined  our  fire  alarm  telegraph  and  elec- 
trical departments.  The  same  with  the  public  improvement  and 
street  departments.  We  do  all  work  ourselves  in  paving,  im- 
provements and  sewer.  We  have  found  a  great  saving  in  crushed 
stone.  We  have  crushed  about  12,000  tons  this  year  which  form- 
erly cost  $1.26  a  ton  but  now  costs  us  68  cents  a  ton  including 
overhead  and  supervision,  so  on  the  12,000  tons  we  have  saved 
some  $7,000.  In  our  electric  light  department  we  have  put  in  a 
new  reading  arrangement  and  the  water  and  light  meters  are 

*  By  C.  A.  Bingham,  Town  Manager.  Speech  before  the  City  Ma» 
agers'  Association,  November  :s-i7«  lO'/- 

13 


192  CITY  MANAGER  PLAN 

read  at  the  same  time  by  the  same  man  instead  of  making  two 
separate  trips.  In  our  police  department  we  have  installed  street 
phones  and  call  lights  and  motorcycles  in  the  outside  districts. 
We  save  a  good  deal  of  money  in  purchasing. 

To  show  you  the  pulse  of  our  citizens,  we  had  a  town  meet- 
ing to  vote  on  $100,000  worth  of  granite  paving,  and  under- 
ground electric  wiring.  There  were  two  hundred  attended  the 
meeting.  We  had  but  three  votes  against  the  proposition  out  of 
the  two  hundred.  We  have  started  a  form  of  sewage  disposal 
plant. 

ROCK  HILL,  SOUTH  CAROLINA* 

I  am  not  so  well  prepared  to  state  all  the  things  that  I  have 
done  in  nine  months.  Rock  Hill  is  by  mileage  604  miles  from 
Dayton.  I  don't  know  how  far  from  New  York,  but  it  is  west 
of  the  Atlantic  Ocean.  It  is  a  very  progressive  town.  I  can't 
say  that  I  have  made  such  a  howling  success  in  the  way  of 
changes  as  some  of  the  other  men  seem  to  think  that  they  have. 
Rock  Hill  is  a  unique  town.  In  1893  the  city  voted  a  bond  issue 
of  $60,000  to  locate  a  certain  college  there,  which  was  a  good 
investment  at  that  time  to  the  city.  It  has  rather  made  the  town 
an  educational  center.  Dr.  J.  G.  Johnson  of  that  institution  was 
recently  elected  president  of  the  National  Educational  Association 
at  San  Francisco.  The  institution  has  had  a  great  influence,  I 
think,  on  city  government  in  keeping  up  a  high  standard. 

When  I  went  there  on  February  ist,  I  found  that  they  had 
matters  in  pretty  fine  shape.  They  had  installed  at  that  time  a 
cabinet  costing  about  two  thousand  dollars,  with  maps  of  the 
different  wards,  locating  all  of  the  property  in  the  city.  There 
was  a  cross-index  system  of  cards  showing  the  names  and  num- 
bers to  each  lot,  the  assessed  valuation  of  the  different  proper- 
ties for  taxation.  The  city  manager  form  down  there  has  done 
some  things,  and  I  believe  that  the  people  appreciate  them.  One 
is  the  consolidation  of  the  entire  city  forces.  There  have  been 
savings  in  other  lines.  I  know  as  I  was  originally  the  superin- 
tendent of  public  utilities  there  before  accepting  the  position  as 
manager  and  probably  comparisons  would  cast  some  reflections 
upon  me,  as  I  occupied  the  position  there  for  three  years  previous. 

^  By  W.  G.  Barnwell,  City  Manager.  Speech  before  the  City  Man- 
agers' Association,  November  15-17,   19 iS- 


OF  GOVERNMENT  193 

We  buy  our  electricity  from  the  Southern  Public  Service 
Company  at  one  cent  and  a  half  per  kilowatt  hour  delivered  on 
the  switchboard  at  the  distributing  end.  We  don't  buy  very  much 
coal.  I  used  to  hire  teams  from  stables  to  unload  coal,  carry 
pipe  around  the  city  for  extension  of  water  mains  and  also  for 
hauling  the  poles  for  replacements  and  extensions  in  the  electric 
light  plant. 

Now  as  to  some  of  the  things  we  have  accomplished  in  the 
nine  months :  we  have  put  in  2,200  feet  of  drain  sewer  in  a  part  of 
town  where  there  has  been  a  muck  hole.  We  have  drained  a 
section  comprising  fifty  acres  which  will  be  valuable  property 
close  in  the  city.  We  have  also  built  a  road  that  had  been  under 
discussion  for  four  years  connecting  some  of  the  cotton  mills 
with  the  city,  at  a  cost  of  $2,500.  We  have  also  built  more 
streets,  without  bond  issues.  Last  year  they  put  down  about  a 
mile  and  a  half  of  asphalt  and  concluded  they  wouldn't  ask  for 
a  bond  issue  this  year.  The  twelve  teams,  owned  by  the  city, 
instead  of  dragging  the  streets  after  each  rain  to  smooth  it, 
have  been  used  in  the  building  of  permanent  streets  or  as  near 
permanent  streets  as  possible.  We  have  put  down  about  two 
miles  of  distintegrated  granite,  nine  inches  thick.  I  think  it  will 
answer  the  purpose  very  well  until  the  permanent  pavement 
comes  up. 

We  have  also  secured  a  new  United  States  court  house.  We 
have  an  additional  electric  service  department  which  wasn't  there 
before.  There  was  absolutely  no  opposition  to  the  city  manager 
proposition.  Rock  Hill  stands  for  progress  and  if  the  town 
progresses  as  well  in  the  future  as  in  the  past,  the  people  will  be 
satisfied  with  the  government. 


ST.  AUGUSTINE,  FLORIDA' 

You  all  know  that  St.  Augustine  is  located  on  the  east  coast 
of  Florida  and  is  the  oldest  city  in  the  United  States.  I  know 
it  is  old  because  very  shortly  after  Ponce  de  Leon  started  the 
town  they  commenced  laying  storm  sewers  and  they  have  not 
cleaned  any  of  them  yet.  The  population  of  St.  Augustine, 
permanent  resident  population,  is  about  8,000,  the  winter  popula- 

*  By  W.  L.  Miller,  City  Manager.  Speech  before  the  City  Managers- 
Association,  November  15-17,  1915. 


194  CITY  MANAGER  PLAN 

tion  is  about  16,000  to  18,000.     The  crop  is  principally  tourist. 
The  budget  last  year  was  $100,000. 

We  have  been  operating  at  a  cost  of  about  $S,400  a  month, 
or  $3,000  a  month  saving,  and  still  giving  all  the  service  hereto- 
fore rendered  and  some  additional  service,  including  about  the 
same  proportion  of  permanent  improvements  that  have  been  put 
in  from  month  to  month  in  the  past.     A  centralized  purchasing 
office  has  been  established  showing  a  saving  of  from  five  to 
eighty  per  cent  in  materials  and  supplies  purchased.     Unit  cost 
records  have  been  installed  in  some  departments  and  are  being 
installed  throughout  all  departments.    One  of  the  first  things  we 
did  in  order  to  show  the  whole  force  that  we  meant  business 
and  would  give  everybody  a  fair  show  and  expected  them  to 
come  up  to  our  standard,  we  fired  the  fire  chief,  and  believe  me, 
that  was   a  howling  success.      The  old  administration   left  us 
practically  bankrupt,  and  thought  we  would  either  have  to  quit 
business    or  call   a  general   election  to  issue  bonds   or  borrow 
money,  but  today  we  are  still  doing  business  and  we  have  not 
borrowed  money  or  issued  any  bonds.     We  did  have  to  collect, 
however,  $22,000.    We  had  on  the  books  which  we  have  been  able 
to  stir  up  by  an  audit  $22,000  of  unpaid  past  due  paving  assess- 
ments, and  last  month  we  collected  about  $5,000  of  that  and  they 
are   still  coming  in.     We  ran  into   of   course  the  usual  petty 
opposition  to  the  plan  as  soon  as  we  started,  the  former  mayor 
being  the  chief  offender.     Heretofore  there  has  been  a  serious 
lack  of  engineering.     Provided  the  city  wanted  an  engineer  for 
any  particular  local  improvement,  they  went  out  of  town  and  em- 
ployed some  engineering  firm,  the  specifications  were  drawn  by 
that  firm,  and  the  plans  and  any  contractors  bidding  on  the  work 
were  compelled  to  go  to  the  other  city  and  get  the  plans  and 
specifications  in  order  to  bid.    We  know  some  work  has  been  put 
in,  we  have  some  visible  indications ;  we  have  no  idea  that  there 
ever  has  been  any  engineering  except  we  see  the  receipted  bills 
on  file  in  the  office  and  endorsed     check  that  the  city  has  paid 
for  that  service.     No  plans  or  profiles  or  specifications  or  any 
data  are  in  the  city  records  of  past  construction  work,  and  this 
is  particularly  true  of  the  underground  work.     When  we  look 
up  any  underground  work  now  we  are  compelled  to  start  from 
one  curb  and  dig  across  the  street  until  we  hit  it.     We  have 
simply  to  investigate  as  we  go  along  and  it  is  being  permanently 
arranged  for  the  future  by  the  employment  of  an  engineer,  also 


OF  GOVERNMENT  195 

out  of  town,  who  is  starting  his  work  by  a  topographic  survey  to 
be  followed  by  a  general  storm  water  sewer  survey  and  a  sani- 
tary sewer  survey. 

Heretofore  they  have  had  a  health  office,  the  president  of  *he 
Board  of  Health  had  his  own  health  officer,  an  honorary  position, 
a  city  physician  on  part  time  with  a  small  remuneration,  and 
one  appointed  by  the  mayor  and  one  by  the  council  and  of  course 
each  worked  against  the  other.  We  have  combined  the  two 
offices  and  started  in  on  a  health  code.  We  are  considering  the 
employment  of  a  visiting  nurse  and  organizing  under  one  head 
all  the  relief  work  and  charitable  work  in  the  city  so  as  to  pre- 
vent not  only  duplication  of  effort  on  the  part  of  those  actively 
engaged  in  the  work,  but  duplication  of  relief  to  any  family.  I 
found  that  the  police  reported  at  six  o'clock  in  the  evening  to  the 
chief  and  went  out  on  their  beats  and  didn't  report  until  six 
o'clock  the  next  morning.  We  now  have  the  police  reporting 
every  fifty  minutes.  At  first  their  eyes  were  kind  of  thick  on 
account  of  loss  of  sleep,  but  they  are  getting  accustomed  to  it. 
Fire  inspection  has  been  started,  the  city  ordinances  have  been 
codified  and  as  rapidly  as  we  can,  they  are  being  revised  to  meet 
the  conditions  of  the  charter  and  the  present  needs  of  the  city. 
Municipal  music  has  been  provided  by  city  subsidies  and  a  mu- 
nicipal band,  white;  and  a  municipal  band,  colored,  has  been 
organized.  The  white  band  gives  concerts  in  the  down  town 
district,  and  the  colored  band  in  the  colored  settlement  once  a 
week,  and  they  are  both  developing  very  well.  In  addition  to 
that,  the  white  band  contributes  its  service  once  a  month  to  a 
municipal  dance  which  is  held  on  one  of  the  principal  streets 
down  town.  The  programs  for  these  dances  are  varied  each 
month.  For  instance,  on  Hallowe'en  we  had  a  big  masquerade 
ball  on  the  street.  The  concerts  each  week  bring  out  an  interest 
on  the  part  of  the  public.  We  have  provided  in  the  budget  for 
street  gardens  and  back  yard  gardens,  following  the  Dayton  plan. 
W^e  have  provided  a  playground  and  turned  it  over  to  the  young- 
sters, but  on  account  of  the  lateness  of  the  season  and  the  con- 
dition of  the  treasury,  we  have  had  to  postpone  some  things  in 
that  line  until  next  year,  although  it  is  on  our  program  for  1916, 
to  push  our  playground  activities. 

We  have  employed  a  special  water  works  engineer  to  come  to 
St.  Augustine  and  make  a  complete  survey  and  give  us  a  com- 
prehensive survey  of  the  needs  for  providing  an  adequate  water 


196  CITY  MANAGER  PLAN 

supply  and  distribution  system,  neither  the  supply  nor  distribution 
system  being  full  and  adequate,  not  only  for  domestic  service, 
but  for  fire  protection. 

We  have  increased  the  tax  duplicate  over  last  year,  say  two 
million  dollars.  The  levy  was  thirty  mills,  the  charter  providing 
that  the  levy  was  not  to  exceed  7^  mills  exclusive  of  the  sinking 
fund  and  maintenance,  which  necessitated  of  course  in  figuring 
in  first,  the  ordinary  operation  fund,  and  second,  the  permanent 
improvement  fund,  which  comes  in  under  our  charter  as  a  fixed 
levy.  The  valuations  have  been  equalized  now  and  the  dupli- 
cate brought  up  to  eleven  million  dollars,  and  the  levy  of  course 
will  be  increased  in  a  corresponding  degree. 


THE  SANDUSKY  SITUATION* 

The  somewhat  embarrassing  situation  that  existed  for  about 
the  first  month  that  the  commission-manager  form  of  govern- 
ment was  in  force  in  Sandusky  was  not  due  to  the  provisions 
of  the  new  charter,  but  altogether  to  the  five  persons  constitu- 
ting the  city  commission.  For  the  most  part  at  least  the  commis- 
sioners are  men  who  have  more  than  fair  ability,  who  are  honest 
and  in  good  standing  in  the  community.  The  prospect  was, 
therefore,  with  the  election  of  these  gentlemen,  that  Sandusky 
had  every  assurance  of  an  efficient  and  businesslike  administra- 
tion. 

It  developed,  however,  shortly  after  the  new  form  of  govern- 
ment became  effective  that  the  commission  could  not  get  together 
on  organization  and  it  appears  largely  for  the  reason  that  they 
were  hopelessly  divided  on  the  election  of  their  chairman,  who 
under  our  charter  becomes  the  mayor.  For  almost  two  weeks  the 
commission  failed  to  elect  its  president,  and  the  dead-lock  which 
existed  during  that  time  seemed  to  have  caused  dissension  among 
the  members  of  the  commission  to  such  a  degree  that  for  some 
time  afterwards  each  member  of  the  commission  on  general 
principles  opposed  everything  that  any  other  member  might  sug- 
gest, with  the  result  that  instead  of  administering  the  affairs 
of  the  city  at  its  meetings  these  were  occasions  only  of  affording 

1  From  a  letter  from  a  well-knowti  member  of  the  Sandusky  bar  printed 
in  the  National  Municipal  Review,  April,   igi6. 


OF  GOVERNMENT  197 

the  members  of  the  commission  an  opportunity  to  vent  their  per- 
sonal feelings. 

The  commission  did  elect  after  considerable  agitation  a  city 
manager,  and  doubtless  made  a  wise  selection  in  Kenneth  Ward, 
as  well  as  in  the  selection  of  the  city  solicitor  and  the  present 
treasurer.  The  failure  of  the  commission  so  far  to  produce 
satisfactory  results  is  further  due  to  the  fact  that  its  members 
are  not  yet  fully  acquainted  with  the  spirit  and  letter  of  the 
charter.  The  past  few  weeks,  however,  have  demonstrated  that 
the  commission  is  becoming  acquainted  with  its  duties  and  that 
its  members  are  able  to  discuss  city  afiEairs  dispassionately. 

Probably  the  chief  reason  why  the  new  form  of  government 
has  not  more  creditably  demonstrated  itself  is  the  same  as  would 
be  attendant  upon  any  radical  change  in  either  governmental  or 
business  affairs.  A  period  of  adjustment  is  always  experienced 
under  such  changes.  It  is  hoped  that  within  the  next  few  months 
the  commission-manager  form  of  government  in  Sandusky  will 
come  up  to  the  fondest  expectations  of  those  who  furthered  the 
adoption  of  its  new  charter. 

This  view  of  the  Sandusky  situation  is  held  by  many  of  the 
people  of  the  city. 


THE  CITY  MANAGER  PLAN  IN  SAN  JOSE* 

I  have  had  a  brief  experience  as  City  Manager  of  San  Jose, 
and  I  am  informed  that  I  am  to  tell  you  tonight  what  I  would 
have  said  had  I  read  you  a  paper  or  talked  to  you  at  the  regular 
session  of  the  Convention  at  which  I  was  scheduled  to  appear. 
It  will  of  course  seem  personal  on  my  part,  but  from  the  nature 
of  the  topic  assigned  it  cannot  well  be  otherwise.  Will  there- 
fore without  further  apology  give  you  a  bit  of  the  experience 
of  a  city  manager  in  a  city  which,  while  it  is  no  mean  city,  has 
been  infested,  I  think,  in  the  past,  by  some  of  the  meanest  politics 
that  has  been  perpetrated  in  any  portion  of  the  state  of  Cali- 
fornia. 

Now,  I  went  down  to  become  a  city  manager  as  an  entirely 
innocent  college  professor— and  the  college  professor  is  reputed 

»  By  Thos.  H.  Reed,  City  Manager.  Delivered  at  the  Spanish  Banquet 
given  to  the  delegates  Thursday  evening,  October  i2th.  Reprinted  from 
Pacific  Municipalities,  vol.  xxx,  no.   ii,  November,   1916, 


iqS  city  manager  plan 

to  be  a  peculiarly  innocent  type  of  man.  I  had  drawn  the  char- 
ter of  the  City  of  San  Jose,  and  had  been  interested  in  the  prob- 
lem of  the  city  manager  form  of  government  theoretically,  and 
when  I  had  the  opportunity  offered  me  to  try  to  work  the  theory 
out  practically,  I  accepted.  I  was  warned  by  my  own  brother, 
for  example,  that  I  had  always  been  a  theoretical  man,  and  that 
therefore  I  should  hesitate  to  tackle  a  practical  job.  And  of 
course,  lots  of  people  said,  "Oh,  he's  just  a  professor."  All  of 
which  roused  my  pride,  and  made  me  want  to  do  it  all  the  more. 
And  whether  I  win  or  lose,  at  any  rate,  I  am  going  to  make  one 
good,  hard  try  at  it,  and  there  will  be  some  satisfaction  in  that — 
at  least  for  me. 

The  city  manager  form  of  government,  theoretically,  means 
that  the  city  council  employs  a  manager  who  bears  the  same 
relation  to  the  city  council  that  the  general  manager  of  a  cor- 
poration bears  to  its  board  of  directors.  He,  in  turn,  appoints 
and  is  responsible  for  the  other  officers  of  the  municipality.  In 
San  Jose,  with  the  exception  of  the  city  auditor  and  police  judge, 
who  are  elected  by  the  people,  and  the  city  clerk,  who  is  ap- 
pointed by  the  council,  and  the  civil  service  commission  and  citj' 
planning  commission,  each  being  a  little  aside  from  the  ordinary 
cases  of  administration,  the  officers  are  all  appointed  by  the  man- 
ager, including  the  members  of  the  board  of  education,  and 
library  trustees.  The  manager  may  remove  any  member  of  the 
city  administration.  That  is,  his  power  is  absolute,  so  far  as  the 
administrative  side  of  the  matter  is  concerned.  So  long  as  he  is 
in  favor  with  the  council,  so  long  as  they  respect  his  judgment, 
he  is  in  command,  and  he  is  responsible  for  what  goes  well  or 
what  goes  ill  in  the  institution. 

Now,  I  did  not  know  whether  the  plan  would  work  or  not,  of 
course,  no  more  than  any  one  else.  I  thought  it  would.  It 
seemed  to  be  sensible.  It  seemed  to  be  reasonable.  It  was  the 
form  of  organization  which  we  had  found  most  successful  in 
private  corporations  and  school  districts  and  in  the  government 
of  many  of  our  state  institutions,  where  the  governing  board 
employs  some  one  to  carry  out  its  functions.  And  so  far,  if 
three  months  is  in  any  wise  a  fair  test,  it  has  worked  well. 
Nobody  has  got  up  a  lynching  party  yet.  There  have  been  no 
very  determined  protests  or  serious  denunciations.  Everything 
has  been  sweet  and  pleasant. 


OF  GOVERNMENT  199 

We  have  not  accomplished  wonders  yet.  I  think  that  every 
man  who  undertakes  a  task  of  this  kind,  indeed,  every  man  who 
goes  into  any  municipal  office,  feels  that  the  first  thing  that  he 
wants  to  impress  upon  the  public  is  that  they  must  wait  a  rea- 
sonable time  for  results.  The  public  has  a  peculiar  habit  of 
expecting  that  a  reform  administration,  when  it  comes  into 
office,  is  going  to  succeed  in  a  few  weeks  in  revolutionizing  the 
course  of  years  and  years  of  municipal  development.  That  can 
not  be  done.  It  is  a  slow  job  to  reverse  the  wheels  and  make 
them  revolve  in  the  opposite  direction,  smoothly  and  without 
friction.  We  have  proceeded  slowly  in  San  Jose.  We  did 
abolish  the  office  of  City  Treasurer  as  a  paid  office,  and  deposited 
the  funds  of  the  city  in  one  of  the  banks  at  2.52  per  cent  interest 
on  average  daily  balances.  The  bank  was  tickled  to  death  to 
take  the  money  at  that  rate,  not  so  much  because  they  wanted  the 
money,  but  because  they  wanted  the  advertisement  of  having 
their  cashier  designated  as  City  Treasurer.  We  saved  the  city  of 
San  Jose  about  $5,000  a  year  by  that  transaction. 

We  have  installed  a  modern  system  of  purchasing,  buying  on 
scientific  principles.  We  have  already  made  reforms  which  will 
result  in  a  saving  of  approximately  a  thousand  dollars  a  month 
merely  on  supplies  that  are  bought  for  the  city  of  San  Jose. 

We  have  reformed  some  of  our  departments,  for  example, 
the  Health  Department,  in  which  formerly  we  had  a  Health 
Officer,  a  doctor  who  gave  such  of  his  time  as  he  could  for  a 
salary  of  $100  a  month.  A  busy  practicing  physician  of  a  suc- 
cessful sort  is  not  able  to  give  very  much  of  his  time  for  that 
compensation.  Under  those  circumstances  you  can  well  realize 
that  our  health  department  was  inadequate  for  the  needs  of  a 
city  of  40,000  population.  We  have  now  a  thoroughly  organized 
public  health  department,  with  a  fulltime  deputy  health  officer, 
occupying  all  of  his  time  in  the  work  of  the  city,  and  we  are 
putting  that  department  on  a  basis  where  it  will  be  able  to  stand 
at  the  front  of  all  the  health  departments  in  the  state  of  Cali- 
fornia. 

We  wanted  to  get  a  man  for  the  health  department,  to  take 
charge  of  the  work,  and  a  lot  of  our  people  said.  "You  must 
take  him  from  San  Jose."  We  said,  "No.  We  will  give  an  exam- 
ination, an  open,  competitive  examination,  for  the  position  of 
assistant  health  officer,  and  we  will  fill  that  place  with  the  best 
man  that  comes  forward  to  take  the  examination,  irrespective 


200  CITY  MANAGER  PLAN 

of  where  he  comes  from."  And  Mr.  Gray,  at  that  time  health 
officer  of  Palo  Alto,  came  forward  and  took  the  examination 
and  passed  it  with  lOO  per  cent,  and  we  appointed  him.  We  feel 
that  we  have  a  prize  in  Mr.  Gray,  who  is  not  a  physician  but  a 
civil  and  sanitary  engineer  trained  at  the  University  of  Cali- 
fornia to  be  a  health  officer.  We  have  a  health  department  that 
is  moving  like  a  buzz  saw  now  into  the  bad  health  conditions. 

We  have  done  a  number  of  other  little  things.  We  have 
secured  the  services  of  the  firm  of  Haskins  &  Sells  to  install  a 
modern  accounting  system.  When  I  went  down  to  San  Jose,  I 
discovered  that  it  was  almost  impossible  to  find  out  how  much 
the  various  services  in  the  various  departments  had  cost.  No 
comparative  data  of  an  administrative  sort,  such  as  are  laid 
upon  the  desk  of  the  manager  of  a  private  corporation  for  his 
enlightenment  in  handling  the  affairs  of  his  corporation,  were  to 
be  had.  We  are  going  to  have  just  that  sort  of  thing.  We  are 
going  to  have  the  best  and  most  up-to-date  form  of  accounting 
that  can  be  secured,  and  it  will  be  a  form  of  accounting  much 
more  similar  to  that  made  use  of  in  first-rate  private  corpora- 
tions than  the  usual  traditional  forms  of  municipal  accounting. 

And  then  there  are  a  lot  of  other  little  things  that  we  have 
done — all  kinds  of  things.  A  city  manager  is  expected  to  do 
almost  anything,  apparently,  from  reconciling  the  marital  diffi- 
culties of  certain  people  in  the  population  to  straightening  out 
the  difficulties  of  saloon  keepers.  It  all  comes  into  the  city  man- 
ager's office,  and  as  time  goes  on,  there  is  more  of  it  coming  in. 
We  have  notified  everybody  in  the  city  of  San  Jose  to  enter  their 
complaints  with  the  manager.  We  published  that  he  could  be 
reached  at  San  Jose  88,  and  San  Jose  88  wires  are  hot  all  day 
with  this,  that,  and  the  other  thing.  We  find  out  quite  a  lot  by 
it.  In  the  first  place,  we  find  out  what  we  should  do  to  satisfy 
the  public,  and  in  the  second  place,  we  find  out  something  of 
what  our  various  officials  are  doing  in  their  official  capacities. 
We  get  the  outside  opinion.  There  is  one  kind  of  a  complaint, 
however,  that  we  pay  no  attention  to — I  suppose  you  have  all 
had  acquaintance  with  it — and  that  is  the  anonymous  com- 
plaint. It  is  a  typical  piece  of  American  cowardice.  People  will 
come  around  and  say,  "Here  is  a  gambling  joint  running  down 
here  in  defiance  of  law."  "Here  is  a  nuisance  that  damages  the 
neighborhood."  "All  right.  Come  forward  with  the  evidence, 
and  we  will  shut  up  the  gambling  place ;  we  will  abate  this  nuis- 


OF  GOVERNMENT  20i 

ance."  "Oh,  no,"  they  say,  "Don't  use  my  name.  I  am  very  glad 
to  give  you  the  information,  but  keep  me  out  of  it."  It  is  a 
cowardly  performance.  The  American  people  have  the  idea  that 
public  officials  can  vicariously  atone  for  all  the  sins  of  the  com- 
munity. When  they  elect  a  man  to  public  office,  they  feel  that 
they  have  done  all  that  is  expected  of  them,  and  that  these 
officers  are  going  to  solve  the  problem,  alone,  and  unaided.  It 
cannot  be  done. 

We  have  learned  some  things  about  the  city  manager  form  of 
government.  We  have  learned  something  about  what  its  merits 
are.  It  has  two  merits.  One  is  that  it  demands  the  careful  and 
intelligent  selection  of  the  various  officers  to  fill  the  various  posi- 
tions. A  manager  must  make  good — that  is  all  there  is  to  it. 
It  does  not  do  him  any  good  to  play  politics  because  he  can  not 
make  good  by  playing  politics.  He  must  make  good  in  his  work. 
In  order  to  make  good  in  his  work,  he  must  select  the  right 
kind  of  men  for  subordinate  positions.  It  means,  in  other  words, 
that  under  the  manager  plan  you  get  the  right  personnel  in  your 
city  government. 

Then  there  is  another  thing.  It  means  that  you  have  a  single 
head,  there  is  no  place  in  this  world  for  a  two-headed  man  or  a 
five-headed  man,  outside  of  a  side  show.  They  are  interesting 
as  objects  of  study,  and  as  matter  of  scientific  observation,  just 
like  a  five-legged  calf,  but  for  the  purposes  of  administration, 
they  are  bad.  When  you  have  a  single  head,  you  have  the  con- 
dition under  which  you  can  enforce  responsibility,  and  responsi- 
bility is  the  most  sobering  and  correcting  influence  in  govern- 
ment. 

Most  of  the  evil  in  municipal  government  is  the  evil  that  is 
done  by  slovenly  or  careless,  only  infrequently  by  corrupt  people, 
who  are  guilty  of  their  particular  pieces  of  carelessness  and 
slovenliness  in  the  dark — in  the  obscurity  of  divided  responsi- 
bility. 

I  have  learned  one  thing  about  drawing  charters.  I  would 
not  draw  a  charter  again  in  which  the  manager  was  made  the 
ceremonial  head  of  the  city  as  well  as  the  going  executive  head. 
As  a  matter  of  fact,  I  was  not  responsible  for  that  provision  in 
our  charter.  Colonel  McClure,  who  happened  to  be  visiting  San 
Jose,  got  that  inserted  in  the  charter  in  the  hands  of  the  Board 
of  Freeholders.  I  think  it  is  a  mistake.  The  manager  ought  not 
to  be   obliged   to  welcome  every   thing   and   shake   everybody's 


202  CITY  MANAGER  PLAN 

hand,  and  dedicate  this  and  open  that,  and  all  that  kind  of  thing. 
He  has  enough  to  do  without  having  to  be  delivering  himself 
of  platitudes  on  all  possible  occasions. 

We  haven't  done  a  great  deal  yet,  naturally.  We  have  just 
started  to  do  things.  We  are  correcting  slowly.  A  lot  of  people 
question  why  we  have  not  done  more  than  we  have,  why  we 
haven't  changed  more  heads  of  departments  and  revolutionized 
more  offices.  We  are  proceeding  slowly.  We  do  not  want  to  dis- 
arrange the  whole  mechanism  of  the  city  government.  We  make 
changes  only  when  we  know  they  are  going  to  work  improve- 
ment. It  is  going  to  take  us  some  time  to  work  it  out.  You 
will  be  interested  in  watching  the  results.  And  they  are  going  to 
be  the  best  results  that  the  hard  and  diligent  service  of  myself 
and  the  men  with  me  can  give. 

Somebody  asked  me  the  other  day  here  if  I  was  giving  my 
whole  time  to  the  city  of  San  Jose — if  I  was  not  running  up  to 
the  University  and  giving  some  lectures,  and  so  on.  I  told  that 
man  I  was  giving  the  whole  of  my  time  from  eight  o'clock  in  the 
morning  until  one  o'clock  the  next  morning,  pretty  steadily,  to 
the  affairs  of  the  city  of  San  Jose.  That  is  the  sort  of  thing 
that  my  assistants,  my  colleagues  in  the  work  are  doing  at  the 
same  time.  In  a  few  cases,  where  we  have  brought  in  a  man 
from  the  outside  to  take  a  position  in  the  government,  people 
have  said  we  were  giving  favors  to  outsiders.  Now,  I  do  not 
consider  a  job  in  the  city  government  of  San  Jose  a  favor.  If 
anybody  thinks  working  15  or  18  hours  a  day,  is  a  sinecure, 
he  is  welcome  to  the  impression,  but  it  is  a  false  one.  The  work 
of  our  city  employes  is  hard  work.  Our  positions  are  respon- 
sible and  difficult.  And  we  are  getting  together  a  mechanism  of 
government  that  is  going  to  move  harmoniously  and  effectively 
for  the  interests  of  the  public. 

Now,  we  may  not  succeed.  We  may  run  into  some  great 
popular  snag  or  other.  We  may  be  checked  over  night  by  some 
problem  that  may  arise  from  the  infinite  vagaries  of  the  public 
mind.  Such  things  are  beyond  the  ken  of  man  to  prophesy.  But, 
given  a  fair  chance,  we  are  going  to  work  it  out. 


OF  GOVERNMENT  203 


SHERMAN,  TEXAS' 

Sherman  is  in  Northeast  Texas  just  over  the  boundary  from 
Oklahoma.  It  has  about  16,000  people,  is  in  an  agricultural  sec- 
tion and  raises  principally  cotton.  It  has  a  number  of  schools, 
considered  very  good  in  Texas,  and  has  a  few^  industries,  princi- 
pally cotton  oil  refineries  and  flour  mills.  I  have  been  manager  there 
less  than  six  months.  The  principal  things  that  we  have  done  I 
will  try  to  outline.  A  thorough  audit  was  made  of  all  the  books 
and  an  accounting  system  was  installed.  Perhaps,  as  is  usual  in 
most  cities,  it  was  found  the  books  were  in  very  poor  shape.  In 
the  water  works  a  shortage  was  found  of  several  thousand  dol- 
lars; an  attempt  is  being  made  to  recover  this.  Four  or  five 
thousand  dollars  delinquent  rents  in  the  water  department  are 
now  being  collected.  A  cut-off  rule  is  being  rigidly  enforced. 
There  has  been  a  purchase  order  system  installed  which  while  I 
have  made  no  comparisons  I  am  sure  is  resulting  in  economy  in 
purchasing.  We  are  also  taking  advantage  of  discounts.  We 
found  practically  nothing  in  the  way  of  engineering  records. 
There  were  no  maps  of  the  sewer  systems  or  I  won't  say  there 
were  none,  but  there  was  no  complete  or  comprehensive  map  of 
the  sewer  system  or  water  system  or  street  system  or  any  plant. 
We  are  working  these  out  and  have  several  of  them  completed. 
In  order  partly  to  get  the  support  of  the  citizenship  and  partly  for 
the  real  benefit  and  information  to  be  derived,  we  have  taken 
advantage  of  the  feature  of  the  charter  which  provides  for  the 
appointment  of  advisory  commissions  to  some  extent.  We  have 
appointed  a  city  planning  commission  for  the  usual  purpose  of 
working  out  a  plan  for  future  improvements.  We  have  appointed 
a  charity  commission  which  has  some  definite  idea  in  view,  not 
to  conflict  at  present  with  the  Associated  Charities  although  it 
may  possibly  take  that  over  after  a  little  time.  We  have  appro- 
priated one  hundred  dollars  and  will  appropriate  more  to  pay 
water  bills  for  those  who  are  really  poor.  We  are  going  to  insist 
on  water  bills  being  paid.  Heretofore  there  have  been  a  great 
many  people  very  lax  about  their  bills  under  the  excuse  of 
charity. 

We  are  looking  into  the  matter  of  establishing  a  day  nursery 

»  By  Karl  Mitchell,  City  Manager.     Speech  before  the  City  Managers' 
Association,  November  15-17,  igiS- 


204  CITY  MANAGER  PLAN 

and  also  a  work  yard.  We  have  also  appointed  a  health  com- 
mission of  physicians  of  the  city  and  we  have  arranged  for  the 
appointment  of  a  civic  music  commission.  In  the  fire  department 
we  have  instituted  fire  inspection  and  are  making  regular  inspec- 
tions both  of  the  premises  for  hazardous  conditions  and  also 
for  violation  of  the  fire  ordinances  and  to  familiarize  the  firemen 
also  with  the  buildings  in  case  of  fire.  In  the  water  department 
we  have  initiated  an  inspection  of  every  service  in  the  city  and 
a  test  of  every  meter  in  the  city.  In  this  way  we  hope  not  only 
to  find  the  inaccurate  and  slow  meters  but  to  locate  leakage  not 
only  for  our  own  benefit  but  for  the  consumers.  We  have  also 
discontinued  making  allowances  on  account  of  leakage,  making 
the  claim  that  water  is  a  commodity  and  there  is  no  more  reason 
for  making  an  allowance  for  water  delivered  to  the  person  than 
anything  else  although  heretofore  they  had  been  accustomed  to 
making  allowances  for  that  purpose.  We  are  drawing  an  ordi- 
nance which  is  considerably  more  rigid  than  our  present  ordi- 
nance requiring  or  which  will  provide  for  concrete  meter  boxes 
and  cut-oflfs  and  will  possibly  also  make  a  slight  reduction  in  rate 
and  probably  provide  for  a  discount  period  which  we  do  not  now 
have  in  our  ordinance  for  payment.  We  are  also  proceeding  to 
complete  the  metering  of  the  town.  It  is  probably  about  ninety 
per  cent  metered  and  we  expect  our  new  ordinance  to  provide 
that  all  churches  and  schools  and  all  users  shall  pay  for  water 
although  at  a  reduced  rate.  These  are  now  getting  it  free.  We 
have  two  water  plants.  The  steam  plant  is  idle  a  good  part  of 
the  day  although  we  maintain  a  full  corps  there  and  maintain 
steam  under  the  boilers.  We  are  working  at  plans  to  consolidate 
our  two  plants  and  will  get  better  efficiency  in  pumping.  I  fully 
expect  to  save  from  ten  to  twenty  thousand  dollars  a  year  in  the 
operation  of  our  water  plant. 

There  is  a  feature  in  our  Texas  law  which  some  of  you 
may  not  have  to  contend  with,  our  homestead  act,  which  makes  it 
very  difficult  to  get  any  public  improvements  in  the  way  of 
streets  and  sidewalks.  We  can't  compel  a  man  who  has  a  home- 
stead to  put  down  any  improvement  whatsoever,  no  matter  where 
it  may  be  located.  He  may  not  have  the  money  and  in  order  to 
eliminate  that  feature,  in  so  far  as  it  is  truthful,  we  have  organ- 
ized a  Municipal  Improvement  Association  and  capitalized  it  to 
start  with  ten  thousand  dollars  for  the  loan  of  money  for  this 
particular  purpose  on  reasonable  terms  to  be  paid  back  in  install- 


OF  GOVERNMENT  205 

ments.  I  found  when  I  went  there  considerable  work  on  sewers 
under  way  which  had  been  started  some  months  previous  during 
the  rainy  season.  The  sewer  would  have  to  be  pumped  out  and 
it  cost  several  times  what  it  ought  to  construct  a  sewer.  I  have 
no  comparative  cost  figures  but  we  cleaned  seven  thousand  feet 
with  a  very  much  smaller  gang  than  they  were  working  before 
and  much  more  rapidly.  We  found  several  sections  of  sewer 
on  top  of  the  ground  that  couldn't  be  used.  One  or  two  cases 
were  found  where  they  were  trying  to  run  the  sewer  up  hill. 
Considerable  expense  was  incurred  in  making  those  changes. 
VVe  are  working  out  a  plan  for  the  extension  of  the  sewer  system 
so  that  we  will  have  something  to  work  to  and  avoid  errors.  We 
are  now  working  out  plans  for  the  installation  of  a  sewerage  dis- 
posal treatment  plant.  We  also  have  under  contemplation,  the 
construction  of  a  certain  amount  of  storm  sewer.  They  started 
to  put  in  pavement  in  this  town  without  any  storm  sewer,  think- 
ing they  could  carry  the  water  off  on  the  pavement,  and  inas- 
much as  the  town  is  hilly,  there  is  some  reason  for  that,  but 
at  the  same  time  they  need  some  storm  sewers  which  have  not 
been  provided. 

We  have  installed  a  dry  closet  collection  system  for  privies, 
which  is  unique,  I  think,  and  one  of  the  most  modern  of  its  kind. 
We  are  completing  a  mile  of  pavement  which  was  contracted 
for  before  we  went  there  and  for  which  they  had  no  plans  or 
specifications.  We  are  negotiating  with  the  light  company  for 
a  reduction  in  rate  and  are  also  considering  the  advisability  of 
instalHng  a  commercial  lighting  and  power  plant.  They  are 
now  charging  a  14  cent  rate,  less  ten  per  cent.  We  figure  that  we 
can  pretty  near  cut  that  in  half.  We  have  just  passed  a  pure 
food  ordinance  and  an  inspector  has  been  appointed  and  work 
will  be  started  immediately.  I  discontinued  a  considerable  num- 
ber of  positions,  and  the  net  results  so  far,  the  first  few  months  of 
operation  shows  that  our  total  expense  for  current  operation  is 
slightly  less  than  last  year,  although  it  includes  considerable  new 
equipment.  We  have  also  installed  the  auditing  system,  rear- 
ranged all  the  offices,  and  provided  new  offices. 


2o6  CITY  MANAGER  PLAN 


SPRINGFIELD,  OHIO* 

Springfield  is  the  best  60,000  city  in  America,  and  is  located 
close  to  Dayton,  both  physically  and  in  our  feelings.  A  floating 
debt  was  reduced  from  approximately  $120,000  to  $40,000  in  the 
first  year.  The  last  of  this  indebtedness  will  be  paid  February 
20th,  1916.  The  tax  rate  in  1914  was  $1.50  per  $100,  in  1915 
$1.40  and  in  1916  it  will  be  $1.31.  The  net  saving  in  operating 
expense  was  $51,600  or  17  per  cent.  Bonds  are  only  issued  to 
mature  during  the  life  of  the  improvement.  We  have  paid  oflE 
this  year  the  first  $5,000  worth  of  bonds  issued  for  fire  depart- 
ment equipment  some  years  ago,  which  we  have  just  changed  this 
year.  The  revenue  in  the  Water  Department  increased  $10,799, 
by  an  additional  outlay  of  $270  in  operating  expenses — this  with- 
out increasing  the  water  rates.  A  new  pumping  plant  of  I2j^ 
million  gallons  capacity  has  been  installed.  In  street  cleaning 
$8,614  was  saved  in  an  outlay  of  $31,000  Fire  hose  was  pur- 
chased at  53>^  cents  per  foot  which  formerly  cost  from  90  cents 
to  $1.15.  Street  lighting  was  changed  to  a  more  efficient  lamp 
saving  $5,545  on  a  $47,000  investment. 

Twenty-one  streets  were  paved,  with  asphalt  or  sheet  asphalt 
or  wood  block  and  so  on,  increasing  the  area  of  paved  streets 
in  Springfield  thirty-three  and  one-third  per  cent.  Forty-six 
streets  were  resurfaced.  Twenty-seven  sewers  were  constructed. 
$10,022.21  was  saved  in  Legal  Advertising,  the  actual  investment 
being  only  $548.58;  in  other  words,  we  only  expended  $548.58, 
which  was  $10,022.21  less  than  the  year  before. 

A  cluster  lighting  system  in  the  business  district  is  being  in- 
stalled, the  conduits  are  all  in  and  we  will  have  the  entire  district 
illuminated  with  cluster  lights  in  the  course  of  a  couple  of 
months.  We  have  inaugurated  a  system  for  examining  all  under- 
ground structures  before  paving  streets.  No  streets  are  paved 
until  every  lot  has  water,  sewer  and  gas  connection  and  where 
it  is  a  repaving  job,  everything  is  inspected  and  examined  before 
the  street  is  repaved,  and  then  we  do  not  allow  a  street  to  be  cut 
into  for  five  years  for  any  purpose.  The  whole  business  district 
has  been  repaved  with  wood  block.    A  water  belt  line  of  fifteen 

*  By  C.  E.  Ashburner,  City  Manager.  Speech  delivered  at  the  second 
annual  convention  of  the  City  Manager's  Association,  Dayton,  Ohio,  No- 
vember 15-17,  19 1 5 


OF  GOVERNMENT  207 

miles  was  constructed  around  the  city  which  secures  water  pre* 
sure  on  all  streets  from  the  center  out  and  from  the  outside  in. 
The  equipment  is  ordered  to  entirely  motorize  the  fire  depart- 
ment and  after  sixt}'  days  from  now  we  won't  have  a  horse  in 
the  department.  The  street  cleaning  department  has  been  motor- 
ized. The  city  prisoners  have  been  put  to  work  in  the  parks 
instead  of  remaining  in  jail.  An  accounting  system  has  been 
installed  and  a  budget,  a  centralized  purchasing  bureau  and  ac- 
counting department  and  a  department  of  dairy  and  food  inspec- 
tion. We  are  also  loaning  the  surplus  in  the  water  department 
to  ourselves  at  three  per  cent,  instead  of  borrowing  from  the 
banks,  and  a  building  code  is  about  ready  for  adoption. 


14 


NEGATIVE  DISCUSSION 

THE  COMING  OF  THE  CITY  MANAGER  PLAN' 

Greater  unity  in  city  government,  which  is  coming  to  be 
demanded  in  some  commission  governed  cities,  can  best  be 
secured  by  giving  the  mayor  more  power  than  the  other  com- 
missioners, thus  placing  him  in  the  position  to  properly  co- 
ordinate the  activities  of  all  departments  and  to  compel,  if 
necessary,  unity  of  action.  This  is  in  line  with  previous  rec- 
ommendations of  the  National  Municipal  League,  which  has 
favored  a  strong  mayor.  It  is  doubtful  whether  the  idea  should 
be  carried  as  far  as  it  is  applied  in  Houston,  Texas,  but  it  may 
be  desirable  to  experiment  in  this  direction.  The  mayor  would,  in 
this  case,  become  the  managing  and  directing  force  of  the  city. 

The  city  manager  plan  departs  in  several  respects  from  com- 
mission government  lines,  and  it  is  doubtful  whether  it  should 
be  classed  as  a  mere  variation  of  commission  government  rather 
than  a  brand  new  plan.  It  contemplates,  we  are  told,  the  elec- 
tion of  a  commission  unpaid,  or  receiving  only  nominal  salaries. 
Most  commissioners  are  paid,  under  the  commission  form,  some 
well  paid ;  many  devote  their  entire  time  to  city  affairs. 

The  city  manager  plan  permits  election  by  wards.  Every 
commission  governed  city  so  far  has  abandoned  ward  elections. 

The  city  manager  plan  should  be  tried  and  the  results  secured 
under  its  operation  impartially  examined;  but  it  should  not  be 
classed  under  the  head  of  the  commission  form  until  it  is  very 
clear  that  it  substantially  agrees  with  the  important  features  of 
that  form.  The  same  credentials  should  be  required  of  this  new 
plan  as  were  held  necessary  in  the  case  of  the  commission  form, 
i.e.,  evidence  that  under  it  municipal  conditions  are  better  than 
they  were  under  the  aldermanic  form;  and  in  addition,  the  evi- 
dence should  be  clear  that  the  city  manager  plan  is  superior  to  the 
commission  form,  before  the  latter,  now  tested  for  ten  years  and 
more,  is  relinquished  for  a  new  and  untried  type  of  government. 

I  By  Ernest  S.  Bradford.  Minority  report  of  the  National  Municipal 
League's  committee  on  commission  form  of  government. 


210  CITY  MANAGER  PLAN 


SOME  CAUTIONS  ABOUT  THE  CITY  MANAGER 

PLAN' 

It  seems  to  me  this  entire  question  of  the  preference  of 
one  system  over  the  other  is  a  question  of  the  adaptability 
of  the  particular  form  to  the  habits,  to  the  prejudices  and  to 
the  political  status  of  the  different  cities  to  which  they  are  to 
be  applied.  I  take  it  that  in  the  end  the  municipal  manager 
system  will  be  found  the  one  best  adapted  to  cities  in  a  gen- 
eral way.  But  when  it  comes  to  applying  it  now  to  cities 
which  have  been  accustomed  to  political  methods,  and  are  still 
subject  to  boss  rule,  I  am  inclined  to  believe  it  might  be  very 
injurious. 

This  is  a  kind  of  reform  we  should  not  hurry  too  much;  we 
ought  to  await  developments,  and  I  am  very  glad  that  the  city 
manager  plan  has  been  preceded  by  the  commission  form  of  gov- 
ernment, and  that  over  three  hundred  cities  have  already  adopted 
that  form.  This  will  do  a  great  work  in  eliminating  the  boss 
systems  by  which  our  municipalities  in  the  United  States  have 
so  largely  been  controlled.  It  will  thereby  lead  public  opinion  to 
regard  city  governments  more  and  more  as  largely  business 
affairs  and  to  be  administered,  if  not  entirely  upon  business 
principles,  at  least  upon  principles  of  common  decency  and 
morality.  After  they  have  reached  that  state  and  after  politics 
in  its  worst  form  has  become  eliminated,  is  the  time  for  the 
city  manager  system  to  be  applied. 

For  the  present,  however,  if  you  apply  that  system,  I  can 
see  what  the  result  will  often  be,  that  it  may  not  be  an  improve- 
ment of  the  commission  plan,  but  will  be  even  worse  than  the 
old  plan  by  which  we  have  been  governed.  I  think  I  can  see  the 
man  who  has  been  our  mayor  for  a  great  many  years,  although 
we  now  have  got  him  out.  I  think  we  know  exactly  how  Doc 
Zimmerman  would  act  if  the  city  manager  plan  were  now  put 
on  in  the  City  of  Richmond.  He  would  lay  his  plans  for  the 
place  before  the  election — the  place,  not  of  mayor,  but  of  city 

^  These  are  the  stenographer's  notes  of  the  remarks  of  the-  Hon.  William 
Dudley  Foulke,  president  of  the  National  Municipal  League  at  the  discus- 
sion of  the  above  report  at  the  Toronto  meeting  of  the  League. 


OF  GOVERNMENT  211 

manager,  and  he  would  have  his  slate  of  five  commissioners  who 
would  go  in  and  vote  for  him,  and  he  would  get  men  who  were 
personally  popular  and  knew  how  to  pull  the  ropes.  His  skill 
as  a  politician  is  much  better  than  that  of  the  men  who  would 
oppose  him.  He  would  have  his  five  men  who  would  vote  for 
him,  and  the  issue  before  election  would  be,  Are  we  to  have  Doc 
Zimmerman  for  manager  or  not? 

It  is  far  better  to  vote  for  a  man  directly  instead  of  indi- 
rectly, as  we  have  done  in  the  election  of  United  States  senators 
and  in  the  election  of  the  president  of  the  United  States.  When 
the  Constitution  was  adopted  it  was  considered  that  the  best  way 
to  elect  a  president  was  not  to  have  the  whole  body  of  people 
vote,  but  to  have  a  selected  body  or  college  who  would  meet  and 
find  out  by  some  means — by  the  inspiration  of  the  spirit  or  some- 
thing— who  was  the  best  man  to  become  president  of  the  United 
States ;  the  people  could  not  be  trusted  to  do  that  work.  It 
was  the  same  way  in  electing  senators — not  to  trust  the  whole 
body  of  the  people,  but  to  have  the  legislature  think  the  thing 
over  and  choose  the  man  they  wanted.  But  the  people  of  the 
United  States  have  now  determined  by  constitutional  amendment 
that  it  is  better  for  the  people  to  choose  by  direct  election  than 
by  this  indirect  method  which  confuses  and  obscures  the  issues 
and  often  degrades  the  electoral  bodies  and  makes  mere  dum- 
mies out  of  the  men  who  compose  them.  That  would  be  the 
result  in  cities  still  subject  to  the  political  usages  which  now 
prevail  in  many  parts  of  the  country.  Therefore,  it  would  be  a 
very  bad  thing  for  the  National  Municipal  League  to  recommend 
the  immediate  adoption  of  a  system  like  that  to  places  that  are 
not  ready  for  it. 

Let  all  cities  that  are  ripe  for  business  administration,  all 
cities  that  have  abolished  political  ideas  in  their  city  government 
— let  them  take  the  city  manager  plan.  But  for  those  which  have 
not,  which  do  not  yet  know  how  to  get  rid  of  the  bosses,  I 
think  it  would  be  a  dangerous  experiment. 

Suppose  instead  of  calling  him  the  city  manager,  you  call  him 
the  city  boss;  you  can  see  how  the  plan  would  work  out  in  a 
community  habituated  not  to  a  manager,  but  to  a  boss.  So  let 
us  go  slow. 

"How  many  things  by  season  seasoned  are 
To  their  right  praise  and  true  perfection!" 


212  CITY  MANAGER  PLAN 

There  is  a  doubt  as  to  whether  the  manager  system  has  yet 
been  tried  far  enough  for  us  to  express  a  definite  opinion  as  to 
whether  it  is  yet  preferable  everywhere  to  the  other  system, 
though  I  believe  that  this  will  ultimately  be  the  case. 


THE  EVOLUTION  OF  TYPES  OF  CITY  GOV- 
ERNMENT IN  THE  UNITED  STATES' 

In  the  entire  evolution  of  municipal  government  in  the 
United  States  there  has  been  nothing  so  unprecedented  as  the 
rapid  development  within  the  last  decade  or  so  of  our  two  most 
recent  and  somewhat  related  types  of  government,  the  so-called 
commission  and  city-manager  types. 

Both  of  these  types  of  government  in  ultimate  analysis  rep- 
resent an  obvious  return  to  something  of  our  municipal  begin- 
nings— a  return  to  the  principle  of  concentrated  power  and  re- 
sponsibility for  the  entire  government  of  the  city  in  a  single 
group.  In  respect  to  commission  government  this  return  is 
striking.  However  important  to  the  success  of  this  plan  of  gov- 
ernment may  be  its  usual  accompanying  features,  I  cannot  re- 
gard them  as  vitally  affecting  the  type  of  government.  They 
are  no  more  and  no  less  essential  to  the  success  of  commission 
government  than  they  are  to  the  success  of  any  other  type  of 
organization  in  which  responsibility  for  performance  is  fairly 
located.  Stripped  of  these  accessories,  commission  government 
is  council  government,  the  government  of  the  colonial  and  post- 
Revolutionary  city,  with  the  single  councilman  as  an  adminis- 
trator substituted  for  the  administrative  councilmanic  committee, 
a  government  in  which  policy-determining  and  policy-executing 
functions  are  united  in  the  same  group. 

In  respect  to  the  city-manager  type,  the  return  to  our  begin- 
nings may  not  be  so  manifest  at  a  glance ;  but  I  think  it  is  none 
the  less  a  reality.  It  is  the  council  that  is  completely  responsible 
for  the  character  of  the  administration.  It  is  true  that  the 
method  of  exercising  this  responsibility  is  somewhat  new.  The 
council  is  empowered  to  direct  the  manager  or  his  subordinates 
only  through  the  medium  of  ordinances.    They  can  legislate  but 

*  "The  Commission  and  City  Manager  Types."  By  Prof.  Howard  L. 
McBain,  Columbia  University.  In  National  Municipal  Review.  6:  ig-30. 
January,   1917. 


OF  GOVERNMENT  213 

they  cannot  actively  participate  in  the  administration.  On  the 
other  hand,  they  can  remove  the  manager  at  will.  In  other  words 
they  must  exercise  their  control  over  actual  administration  by 
acting  upon  the  manager  per  se  and  not  upon  his  individual  acts. 
It  is  easy  enough  to  write  this  arrangement  into  law,  but  the 
actual  operation  o£  the  letter  and  spirit  of  that  law  will  of 
necessity  depend  upon  the  degree  of  co-operation  that  is  main- 
tained between  the  council  and  the  manager.  So  far  as  the 
scheme  itself  is  concerned,  I  can  readily  conceive  of  a  manager 
who,  by  reason  of  his  dependence  upon  the  council  for  the  re- 
tention of  his  position,  would  allow  himself  to  become  little  more 
than  a  chief  clerk  for  a  council  which  actually  dominated  and 
controlled  the  entire  administrative  operations  of  the  city.  Such 
a  result  might  be  a  violation  of  the  spirit  of  the  law ;  it  would 
not  be  a  violation  of  its  letter.  Even  with  a  manager  of  ability 
and  independence  and  a  council  imbued  with  a  desire  of  realizing 
the  spirit  of  this  type  of  government,  I  can  conceive  of  the 
development  of  a  d-egree  of  councilmanic  control  over  actual 
administration  through  the  medium  of  warnings  in  advance  of 
dismissal.  The  truth  of  the  matter  is  that  you  cannot  write  into 
law,  a  precise  division  of  function  between  two  authorities  where 
the  tenure  of  one  is  absolutely  at  the  mercy  of  the  other.  The 
authority  in  control  of  the  tenure  can  always,  if  it  chooses,  con- 
trol the  discretion  of  its  subordinate  even  within  the  written 
sphere  of  that  subordinate. 

I  say  this  not  in  criticism  of  the  city-manager  plan  of  gov- 
ernment. I  consider  it  a  type  of  government  that  has  much  to 
commend  it.  It  has,  indeed,  so  much  of  virtue  in  it  that  it  seems 
to  me  unnecessary  to  ignore  or  gloss  the  facts  about  it.  It  does 
not  of  necessity  involve  a  separation  of  policy-determining  and 
policy-executing  functions.  It  does  not  of  necessity  result  in 
administration  by  experts.  The  degree  of  separation  and  the 
degree  of  expertness  that  result  must  be  ascribed  not  to  anything 
that  inheres  in  the  form  of  government  but  to  the  practice  under 
that  form  as  it  has  developed  under  the  compelling  force  of 
enlightened  public  opinion. 

I  do  not  wish  to  seem  captiously  legalistic;  but  there  is  cer- 
tainly a  difference  between  that  which  is  law  and  that  which  is 
public  opinion.  From  the  viewpoint  of  the  law,  there  is  little  tlip.t 
is  new  in  the  city-manager  type  of  government.  It  is  a  return 
to  the  system  of  councilmanic  control.    The  only  new  feature  is 


214  CITY  MANAGER  PLAN 

that  the  council  must  exercise  that  control  through  the  agency 
of  a  single  chief-subordinate  instead  of  acting  directly  upon  a 
number  of  subordinates.  Under  the  New  York  charter  of  1830  a 
city-manager  plan  of  government  might  easily  have  been  in- 
stalled. When  the  Dayton  charter  of  1913  vested  in  a  "govern- 
ing body"  knovi^n  as  a  commission  the  power  to  "pass  ordinances" 
and  to  appoint  and  remove  a  "city  manager  who  shall  be  the 
administrative  head  of  the  municipal  government,"  there  was  no 
reason  why  a  partisan  or  corrupt  commission  might  not  have 
dominated  the  entire  administration  through  the  choice  of  a 
manager  wholly  subservient  to  their  designs. 

It  may  be  that  neither  the  commission  form  nor  the  city- 
manager  type  of  government  is  the  last  word  in  municipal  or- 
ganization in  the  United  States.  To  my  mind  they  are  of  less 
interest  as  types  than  as  an  expression  of  a  manifest  and  com- 
pelling need,  on  the  one  hand,  and  the  proof  of  a  change  of 
public  mental  attitude  on  the  other.  They  express  the  need  for 
simplicity  in  municipal  organization.  Democracy  cannot  function 
properly  through  a  complicated  organization  which  it  cannot 
visualize  and  cannot  comprehend.  Pinning  our  faith  to  the 
catholicon  of  reorganization,  we  early  began  to  emerge  from 
simplicity  in  municipal  organization.  For  more  than  half  a  cen- 
tury we  reaped  the  reward  that  might  have  been  expected  from 
the  complications  we  introduced.  We  are  now  in  the  era  of  a 
return  to  simplicity.  It  is  a  sign  that  is  full  of  hope,  whatever 
may  be  the  specific  type  of  government  in  which  the  movement 
finds  expression. 

I  do  not  ignore  the  importance  of  governmental  form  in  a 
democracy.  But  I  am  profoundly  convinced  that  we  have  laid 
and  are  laying  too  great  stress  upon  this  matter  of  form.  This 
or  that  type  of  government  is  of  importance  only  to  the  extent 
that  it  lends  itself  to  the  smooth  functioning  of  democratic  con- 
trol. We  cannot  assume  that  any  organic  form  will  give  the 
people  of  a  city  a  better  government  than  they  desire.  The 
fundamental  assumption  of  democracy  is  that  the  people  actively 
and  positively  desire  the  best  government  possible.  The  machin- 
ery of  government  is  of  interest  and  importance  only  in  the 
degree  that  it  facilitates  or  obstructs  the  realization  of  this  desire. 

I  am  inclined  to  believe  that  had  the  commission  or  the  city- 
manager  type  of  government  been  established  a  generation  or  so 
ago  it  would  have  been  a  dismal  failure.     In  an  atmosphere  of 


OF  GOVERNMENT  215 

public  indifference,  of  inactivity,  of  lack  of  heart  or  of  interest, 
it  would  have  lent  itself  admirably  to  the  machinations  of  pro- 
fessional politicians  and  spoilsmen.  We  should  hesitate  to  give 
to  the  genius  of  a  designer  credit  that  is  in  fact  due  to  a  nevf 
motive  force — in  this  case  to  an  awakened,  vitalized,  and  actively 
operating  public  opinion.  Unstinted  laudation  of  the  virtues  of 
these  types  of  government  may  be  justified  as  a  means  for 
keeping  public  opinion  upon  its  mettle ;  but  is  the  danger  not  real 
that  it  may  also  result  in  convincing  a  busy  and  not  too  exacting 
people  here  at  last,  after  all  the  futile  searching  of  the  years, 
they  have  come  upon  their  long-sought  Eldorado — a  super-gov- 
ernment, a  government  so  perfect  in  type  that  they  can  wind  it 
up  at  periodical  elections  and,  with  supreme  confidence  in  its 
ability  to  run  itself,  turn  their  attention  to  other  things? 


DEFECTS  IN  THE  DAYTON  CHARTER' 

At  the  present  time  when  the  agitation  in  favor  of  the  so- 
called  city  manager  plan  of  city  government  is  becoming  so 
wide-spread  as  to  attract  nearly  universal  attention,  it  is  well  to 
distinguish  between  the  merits  of  the  plan  per  se  and  the  fea- 
tures of  any  particular  charter  that  may  be  cited  as  putting  that 
plan  into  effect. 

The  charter  most  frequently  cited  in  this  connection  within 
the  last  few  months  is  that  of  the  city  of  Dayton.  Dayton  being 
the  largest  city  in  this  country  that  has  so  far  put  the  plan  into 
actual  operation  interest  is  naturally  centered  on  that  place,  and 
copies  of  the  Dayton  charter  are  in  great  demand  wherever  any 
interest  is  shown  in  the  new  movement.  It  is  especially  desirable 
therefore  that  a  general  indorsement  of  the  city  manager  plan 
be  not  misconstrued  into  an  indorsement  of  all  the  features  that 
are  found  in  this  charter,  which  has  assumed  more  or  less, 
through  the  recommendations  of  the  Dajiion  bureau  of  municipal 
research,  the  role  of  a  model  charter  for  other  municipalities 
desirous  of  following  along  the  new  lines. 

It  is  quite  unnecessary  here  to  discuss  the  merits  of  the  plan 
for  expert  city  administration  of  which  the  city  manager  move- 

1  By  Herman  G.  James,  Director,  Bureau  of  Municipal  Research  and 
Reference,  University  of  Texas.  In  National  Municipal  Review.  2:95-7. 
January,  1914. 


2i6  CITY  MANAGER  PLAN 

ment  is  properly  considered  as  the  chief  exponent.  On  the  ad- 
vantages of  expert  city  administration  students  are  agreed,  and 
it  is  also  true  that  the  city  of  Dayton  has  definitely  declared  it- 
self in  favor  of  the  application  of  the  principle,  and  to  that 
extent  deserves  the  admiration  and  congratulations  of  the  sup- 
porters of  efficient  city  government  throughout  the  country. 

But  there  are  some  features  of  the  Dayton  charter  which 
seem  to  be  undesirable  and  yet  which,  unfortunately,  would  be 
just  as  likely  to  be  copied  in  other  city  charters  as  would  the 
commendable  ones. 

Three  of  these  defects  deserve  particular  mention,  one  of 
them  in  fact  being  of  a  nature  to  destroy  in  a  measure  the  very 
benefits  which  this  new  plan  is  meant  to  secure. 

The  first  of  these  weaknesses  is  found  at  the  very  beginning 
of  the  charter  where  in  section  i  an  enumeration  of  the  powers 
of  the  corporation  is  attempted.  Now  it  is  a  well  recognized 
fact  that  the  practice  of  enumerating  the  corporate  powers  of 
cities  has  been  the  source  of  great  inconvenience,  in  this  country. 
No  enumeration  can  ever  be  complete  and  so  it  is  necessary  to 
add,  as  has  been  done  in  section  2  of  the  Dayton  charter,  that 
"the  enumeration  of  particular  powers  by  this  charter  shall  not 
be  held  or  deemed  to  be  exclusive,  but,  in  addition  to  the  powers 
enumerated  herein,  implied  thereby  or  appropriate  to  the  exercise 
thereof,  the  city  shall  have,  and  may  exercise  all  other  powers 
which  under  the  constitution  and  laws  of  Ohio  it  would  be  com- 
petent for  this  charter  specifically  to  enumerate."  Even  if  such 
a  blanket  provision  affected  its  purpose,  namely,  to  confer  upon 
the  city  all  local  powers  so  far  as  possible  under  the  laws  and 
constitution,  we  would  at  least  have  to  conclude  that  the  enu- 
meration in  section  i  is  surplus  verbiage.  But  that  is  not  all, 
for  courts  have  repeatedly  taken  the  view  that  the  principle  of 
inclusio  unins,  cxdusio  alteriiis  will  be  applied  whenever  there  is 
an  enumeration  of  such  corporate  powers,  and  that  a  blanket 
clause  like  that  of  section  2  above  will  not  be  given  effect. 
Hence  such  an  enumeration  so  far  from  being  of  any  benefit 
may  be  a  positive  detriment.  Much  better,  therefore,  would  it  be, 
to  make  a  general  grant  of  powers  subject  to  the  limitations 
imposed  in  the  charter. 

The  second  feature  of  the  Dayton  charter  which  it  would 
seem  undesirable  for  other  cities  to  copy  relates  to  the  nomina- 
tion provisions.     More  than  two  pages  are  taken  up  with  regu- 


OF  GOVERNMENT  217 

lations  concerning  primary  elections,  when  it  would  have  been 
much  simpler  to  provide  for  nomination  by  mere  declaration,  on 
the  English  plan.  Primary  elections  are  no  doubt  superior  to  the 
old  packed  convention  system  of  party  nomination,  but  where  it 
it  is  the  avowed  purpose  to  a  charter,  as  it  is  that  of  the  Dayton 
charter  to  have  "party  politics  eliminated"  it  is  unnecessary  to 
have  any  kind  of  formal  nomination  procedure.  Primary  elec- 
tions double  the  cost  of  elections,  and  what  is  worse  they  double 
the  burden  of  the  elector,  which  means  just  that  much  less  par- 
ticipation by  the  voters,  especially  the  best  fitted  ones.  If  a  mul- 
tiplicity of  candidates  is  feared,  it  is  suggested  that  the  prob- 
ability of  minority  candidates  being  chosen  as  a  result  of  many 
applicants  is  on  the  one  hand  not  a  real  danger  and  on  the  other 
can  be  met  in  a  simple  manner.  That  facility  in  becoming  a  can- 
didate does  not  necessarily  lead  to  a  plethora  of  aspirants  is 
shown  by  the  experience  of  England.  But  even  if  it  should  do 
so  in  this  country  the  danger  of  minority  choices  can  be  met  by 
the  use  of  the  preferential  ballot. 

The  third  objectionable  feature  of  the  Dayton  charter  is  of 
much  greater  significance  because  it  seems  to  strike  right  at  the 
heart  of  the  city  manager  principle.  By  section  13  of  the  charter 
the  city  manager  is  viade  subject  to  recall.  Now  it  seems  clear 
that  the  ver>^  first  step  in  the  direction  of  expert  city  administra- 
tion was  to  take  the  choice  of  the  experts  out  of  the  hands  of  the 
electorate  and  to  put  it  into  the  hands  of  some  other  organ,  the 
council  or  the  mayor  as  the  case  might  be.  It  was  felt  that  this 
offered  greater  opportunity  of  getting  an  expert  man  in  the  first 
place  and  of  having  him  administer  the  affairs  of  the  city  ener- 
getically, without  continually  weighing  in  his  mind,  the  probable 
effects  of  enforcing  this  or  that  administration  measure  which 
might  be  disagreeable  to  this  or  that  influential  political  individ- 
ual or  group.  If  it  is  characteristic  of  the  city  manager  plan  to 
make  the  commission  or  council  responsible  for  choosing  the 
best  man  for  the  place,  what  possible  justification  can  there  be 
for  making  that  same  man  subject  to  recall  by  the  electorate.  If 
he  must  "make  a  hit  with  the  people"  to  keep  from  being  re- 
called, he  is  scarcely  in  a  better  situation  than  if  he  has  to  make 
a  hit  with  the  people  to  be  elected  in  the  first  place  and  his 
motives  will  inevitably  be  influenced  by  the  contemplation  of 
what  response  this  or  that  proposed  improvement  will  meet  w-ith 
in  the  minds  of  the  voter. 


2i8  CITY  MANAGER  PLAN 

We  have  made  a  long  stride  in  the  right  direction  when  we 
discard  the  fallacy  of  trying  to  elect  expert  administrators  by 
popular  vote.  Let  us  not  slide  back  half  way  or  more  by  allow- 
ing popular  vote  to  determine  whether  or  not  such  an  adminis- 
trator shall  continue  in  office. 


EXPERIENCE  OF  SANDUSKY,  OHIO* 

The  city  manager  plan  went  into  operation  in  Sandusky,  Ohio, 
the  first  of  the  year  (1916).  The  commission  of  five  mem- 
bers had  scarcely  organized  before  a  split  disclosed  itself.  There 
is  little  doubt  that  the  spHt  was  due  to  the  fact  that  Commis- 
sioner Stubig  and  Commissioner  Graefe  were  the  representatives, 
in  fact  the  leaders  of  two  contending  factions.  The  struggle 
opened  over  the  election  of  the  president  of  the  commission.  It 
was  at  this  time  that  Stubig  won  the  support  of  Commissioner 
Koegle,  who  was  elected  president  of  the  commission,  and  thus 
secured  control  of  a  majority  of  the  commission.  The  first  cli- 
max in  the  conflict  between  Stubig  and  Graefe  was  reached 
when  the  majority  of  the  commission  ousted  Auditor-treasurer 
Cheney  from  office.  Thereupon  the  two  minority  commissioners 
Graefe  and  Mitchell  in  a  signed  statement  published  in  all  the 
newspapers,  advocated  the  recall  of  the  entire  commission  on  the 
ground  that  its  lack  of  harmony  was  seriously  hampering  the 
proper  administration  of  public  affairs. 

The  two  daily  papers  pushed  the  movement  for  the  recall  of 
the  entire  commission.  The  basis  of  their  attack  was  that  the 
commission  was  out  of  joint  with  itself  as  demonstrated  by  the 
fact  that  the  vote  on  every  important  question  was  three  to  two, 
and  that  the  majority  of  the  commission  had  subverted  the 
charter  by  introducing  politics.  They  had  removed  the  auditor- 
treasurer,  an  expert  called  in  from  the  outside,  before  he  had 
been  given  sufficient  time  to  prove  his  merit  in  order  to  put  in  his 
place  one  of  their  own  friends.  They  had  in  order  to  build  up 
patronage  seriously  hampered  the  city  manager  in  his  appoinN 
ments  even  to  the  extent  of  dictating  the  appointment  of  his 
stenographer. 

\  Reprinted  from  "Some  Recent  Uses  of  the  Recall,"  by  F.  Stuart  Fit/- 
Patrick,  in  the  National  Municipal  Review,  July,   19 16. 


OF  GOVERNMENT  219 

Stubig's  Weekly  which  represents  the  majority  of  the  com- 
mission replied  to  these  charges  with  vigor  and  no  little  feeling. 
It  charged  that  the  whole  recall  movement  was  a  conspiracy  on 
the  part  of  the  two  minority  commissioners  in  coalition  with 
certain  powerful  clubs  of  the  city  and  the  two  daily  newspapers 
to  gain  control  of  the  city  administration  by  means  of  a  new 
election.  It  justified  the  dismissal  of  the  auditor-treasurer  on 
the  ground  that  he  was  an  expert  accountant  who  knew  nothing 
of  municipal  affairs.  It  stated  that  the  city  manager,  whom  they 
had  secured  from  the  outside  in  order  that  he  might  make  fair 
and  impartial  appointments,  had  upon  coming  to  Sandusky 
lodged  at  one  of  the  clubs  where  he  fell  in  with  a  society  out  of 
sympathy  with  the  ideals  of  the  people,  and  had  without  con- 
sulting the  commissioners  made  his  appointments  on  the  recom- 
mendations of  this  society.  It  was,  consequently,  the  imperative 
duty  of  the  commission  to  supervise  his  appointments.  The  com- 
mission, not  its  hired  appointees,  was  on  trial  before  the  people. 

The  recall  movement,  if  it  may  be  termed  such,  initiated  by  the 
two  minority  commissioners,  spent  itself  in  mutual  recrimina- 
tions and  threats.  Commissioner  Stubig,  however,  did  get  under 
way  a  ceal  movement  to  recall  minority  Commissioner  Graefe, 
at  least  preliminary  petitions  are  being  circulated  among  the 
south  and  west  end  residents.  It  is  doubtful  whether  the  petition 
will  receive  sufficient  signatures  since  Commissioner  Graefe 
"is  a  prominent  man  and  a  banker  who  is  greatly  feared  in 
politics." 

It  is  difficult  to  evaluate  the  recall  in  a  situation  such  as 
exists  at  Sandusky.  That  city  is  torn  apart  by  bitter  factions, 
and  the  chief  issue  is  one  of  personalties  rather  than  of  efficient, 
serviceable  government.  The  recall,  like  every  other  instrument 
of  government,  can  be  used  as  a  weapon  in  a  factional  conflict, 
and  as  such  it  is  neither  more  nor  less  legitimate  than  any  other 
instrument  of  government.  The  recall  did  not  introduce  con- 
fusion into  the  municipal  politics  of  Sandusky.  It  is  doubtful 
whether  it  is  able  to  dispel  any  of  the  confusion.  The  electorate 
could  make  use  of  it  to  oust  its  "wrangling"  politicians.  One 
of  the  factions  could  make  use  of  it  to  defeat  its  opponents. 
The  real  crux  of  the  matter  here,  as  always,  is  the  level  of  public 
opinion. 


220  CITY  MANAGER  PLAN 

ASHTABULA'S  EXPERIENCES' 

Ashtabula's  Experiences. — Early  in  1915  Ashtabula,  Ohio, 
adopted  a  charter  embodying  the  city  manager  plan.  An  ac- 
count of  how  this  charter  was  amended  so  as  to  provide  for 
choosing  the  council  by  the  Hare  system  of  proportional  repre- 
sentation and  of  the  first  election  under  the  amended  charter  was 
given  in  the  previous  issue  of  the  National  Municipal  Review.^ 
Since  that  article  was  written  a  manager  and  other  administra- 
tive officers  have  been  chosen  by  the  council  and  the  new  plan  of 
government  has  gone  into  operation.  Difficulties  that  arose  in 
selecting  a  manager  have  been  given  such  wide  publicity  that  an 
account  of  what  actually  took  place  and  a  statement  of  the  pres- 
ent situation  may  be  of  some  interest.  What  is  here  written  is 
based  on  a  knowledge  of  conditions  in  Ashtabula  extending  over 
several  years,  and  on  a  recent  investigation  made  on  the  ground. 

The  council  of  seven  elected  in  November,  1915,  took  office 
January  i,  1916.  Their  first  and  most  important  duty  was  to 
choose  a  city  manager.  In  the  performance  of  this  duty  four 
councilmen  at  once  showed  a  disposition  to  play  very  personal, 
very  cheap  and  very  undesirable  politics.  Three  of  this  group  of 
four  had  been  members  of  the  council  under  the  old  city  govern- 
ment, and  the  fourth  was  the  one  socialist  elected  under  the  new 
charter.  The  other  three  members  of  the  council  acquitted 
themselves  with  credit,  sometimes  voting  to  select  a  manager 
from  outside  the  city  and  sometimes  voting  for  a  distinctly  capa- 
ble Ashtabula  man  with  a  good  record  of  public  service. 

The  Ashtabula  charter  does  not  specifically  forbid  the  council 
to  choose  one  of  its  own  members  as  manager  though  such  a 
choice  would  be  entirely  at  variance  with  the  spirit  and  funda- 
mental principles  of  the  manager  plan.  After  a  good  deal  of 
jockeying  and  fruitless  balloting  councilmen  Briggs,  Corrado, 
Earlywine  and  Hogan  united  in  voting  for  Briggs.  The  city 
was  outraged.  While  not  undesirable  as  a  councilman,  Briggs 
has  no  qualifications  for  the  managership  except  that  just  at 
that  time  he  was  badly  in  need  of  a  job  whereby  to  support 
himself  and  family.  A  storm  of  public  disapproval  broke  over 
the  council  and  centered  itself  on  Briggs.  Here  the  advantage 
of  the  concentrated  responsibility  and  authority  provided  by  the 

^  By  A.  R.  Hatton.     National  Municipal  Review.  5:660-2.  October,  1916. 
*  Vol.   V,   p.   56. 


OF  GOVERNMENT  221 

charter  manifested  themselves.  After  twelve  days  of  hesitation, 
Briggs  yielded  to  the  pressure  of  public  opinion  and  declined 
the  managership.  The  council  returned  to  its  balloting.  Finally 
on  January  25,  and  after  one  hundred  ballots  had  been  taken, 
Corrado,  Briggs,  Earlywine  and  Hogan  voted  for  J.  Warren 
Prine,  a  well  known  citizen  of  Ashtabula,  and  he  accepted  the 
managership  at  a  salary  of  $2,500  per  year. 

Probaby  no  one  alive  to  the  spirit  of  the  manager  plan  and 
appreciating  its  possibilities  would  regard  the  choice  of  Mr.  Prine 
as  better  than  mediocre.  Material  of  superior  quality  could  have 
been  found  in  Ashtabula.  He  is  fifty  years  old,  has  been  active 
in  politics  as  a  Republican,  was  postmaster  of  Ashtabula  for 
twelve  years  prior  to  January,  1915,  has  conducted  a  coal  and 
builders'  supply  business  for  a  short  time  and,  on  the  whole,  can 
be  said  to  have  had  no  training  that  specially  qualifies  him  for 
the  position  of  manager. 

On  the  other  hand  it  should  be  said,  in  fairness,  that  the 
citizens  of  Ashtabula  seem  to  see  nothing  inappropriate  in  Air. 
Prine's  appointment.  He  has  a  reputation  for  honesty  and  is 
undeniably  popular  with  all  classes.  He  appears  to  have  more 
than  the  ordinary  equipment  of  common  sense  and  has  turned 
to  his  new  duties  with  an  earnestness  that  may  go  far  in  com- 
pensating for  his  initial  deficiencies.  In  order  to  acquaint  him- 
self with  his  work  he  visited  Dayton  and  Springfield,  the  two 
most  prominent  commission  manager  cities  in  the  country.  The 
people  of  Ashtabula  seem  to  regard  him  with  considerable  confi- 
dence. He  has  stated  that  political  considerations  will  play  no 
part  in  his  appointments,  but  that  subordinates  will  be  selected 
upon  the  basis  of  fitness  alone.  The  few  changes  that  he  has 
made  seem  to  meet  with  general  public  approval  and  are  un- 
deniably in  the  interest  of  efficient  and  economical  government. 

« 

ONE  EDITOR'S  OPINION  OF  THE  CITY  MAN- 
AGER PLAN  IN  NIAGARA  FALLS,  N.Y.' 

In  brief,  the  people  voted  to  adopt  this  plan  in  November, 
1914,  and  out  of  the  seven  thousand  or  more  voters  of  this  city, 
less  than  one-half  gave  any  expression  either  way.  The  two 
party  organizations  were  opposed  to  it,  but  did  nothing — believing 

^  A  letter  from  E.  T.  Williams,  Editor-Manager  of  the  Niagara  Falls 
Journal. 


222  CITY  MANAGER  PLAN 

that  the  proposition  would  be  defeated  at  the  polls.  A  year 
later,  officers  were  elected  under  this  plan  which  as  you  will 
see  embraces  a  mayor  and  four  councilmen  elected  at  large,  who 
appoint  the  city  manager.  When  these  officials  came  into  office 
they  adopted  a  set  of  ordinances  purporting  to  put  into  effect 
Plan  C,  but  Attorney-General  Woodbury,  of  this  state,  handed 
down  an  opinion  shortly  afterward  to  the  effect  that  some  por- 
tions of  Plan  C  were  unconstitutional.  A  bill  was  thereupon 
prepared  embracing  the  ordinances  which  had  been  passed  by 
the  councilmen,  which  was  passed  by  the  Legislature  and  signed 
by  the  Governor. 

An  outside  man  was  appointed  City  Manager  at  a  salary  of 
$5,000  per  year,  which  is  double  any  salary  ever  paid  for  any  city 
office  in  Niagara  Falls. 

Public  opinion  is  divided  as  to  the  efficiency  and  general 
desirability  of  the  city  manager  plan.  The  only  other  city  in 
New  York  state  that  has  it  is  Newburgh.  Voters  of  several  cities 
to  whom  this  plan  has  been  submitted,  in  New  York,  have  re- 
jected it.  The  consensus  of  opinion  here  now  is  that  if  the  plan 
were  submitted  to  this  City  at  this  time,  it  would  be  disapproved. 
It  has  now  been  in  effect  virtually  for  one  year  and  two  months, 
but  under  the  provisions  of  the  law  the  question  cannot  be  sub- 
mitted until  the  expiration  of  four  years. 

The  mayor  and  four  councilmen  were  all  elected  upon  the 
Republican  ticket,  and  contrary  to  the  predictions  regarding  it, 
the  city  government  of  Niagara  Falls  is  largely  a  partisan  gov- 
ernment. Two  of  the  councilmen  are  to  be  elected  again  next 
fall,  while  the  mayor  and  other  two  councilmen  serve  four  years. 
The  prediction  is  made  that,  although  this  city  is  normally 
strongly  Republican,  the  two  councilmen  elected  next  fall  will 
be  Democrats. 

CATARACT  JOURNAL  COMPANY, 

E.  T.  Williams, 

Editor-Manager. 


OF  GOVERNMENT  223 


ARGUMENTS    AGAINST   THE   ADOPTION    OF 

THE  CITY  MANAGER  PLAN  IN  PASADENA, 

CALIFORNIA' 

On  November  21,  1916,  the  citzens  of  Pasadena  defeated 
the  city  manager  charter  by  a  vote  of  4,640  to  4,041. 

Existing  Commission  Plan  Has  Been  Successful 

In  the  twenty-six  years  since  I  have  been  in  Pasadena  our 
city  government  has  existed  under  a  number  of  different  plans 
and  I  think  it  can  be  fairly  said  that  under  all  of  the  different 
plans  we  have  had  a  good  city  government. 

At  first  the  city  was  incorporated  under  the  statutory  charter 
of  a  city  of  the  sixth  class,  planned  for  the  smallest  class  of  an 
incorporated  municipality  with  a  board  of  trustees. 

Then,  years  after  we  had  outgrown  that  charter,  a  free- 
holders' charter  was  prepared  by  a  large  board  of  freeholders, 
who  labored  for  many  months,  with  great  care,  to  work  out  the 
details  properly.  And  I  remember  that  at  that  time,  the  theory 
of  having  much  power  vested  in  one  man  was  much  discussed, 
and  the  office  of  mayor  was  created  with  that  design  in  view. 
Although  the  utmost  care  was  taken  in  the  preparation  of  the 
freeholders  charter,  it  has  been  found  necessary  from  time  to 
time  to  make  some  modifications  of  the  same. 

Then,  years  after  we  had  outgrown  that  charter,  a  free- 
mission  form  of  government  was  much  discussed,  and,  after  ma- 
ture consideration  and  careful  preparation,  was  adopted  and  the 
necessary  changes  in  the  charter  made.  And  since  then,  instead 
of  having  one  manager,  we  have  had  five,  each  one  in  charge  of 
the  particular  department  of  the  municipal  business,  for  which 
he  was  best  qualified  by  training  and  experience ;  and  all  to- 
gether sharing  the  responsibility  of  definite  action  upon  the  more 
important  matters.  And,  as  far  as  I  can  judge,  most  of  our 
citizens  are  quite  well  satisfied  with  the  results  thus  far  shown. 

It  should  be  remembered  that  probably  no  plan  or  form  of 
city  government  can  or  should  be  devised,  which  will  not  leave 
much  to  the  personal  initiative  and  judgment  of  its  responsible 
governing  body.    And  it  is  most  important  that  radical  changes 

*  Reprinted  from  issues  of  The  Star-News,  November,   1916. 
15 


224  CITY  MANAGER  PLAN 

in  the  fundamental  law  of  any  government  should  not  be  made 
hastily  or  without  the  most  careful  preparation  and  considera- 
tion. 

We  certainly,  therefore,  should  not  always  be  tinkering  with 
our  charter,  by  making  radical  and  sudden  changes  in  its  plan; 
but,  on  the  contrary,  having  once  deliberately  decided  to  try  out 
the  commission  form  of  government,  it  would  seem  that  the 
reasonable  and  sensible  thing  to  do  is  to  first  thoroughly  try  out 
that  plan,  making,  in  the  meantime,  such  reasonable  adjustments 
as  experience  may  show  to  be  necessary.  And  any  changes  what- 
ever that  are  made  in  a  charter,  should  only  be  made  after  the 
most  thorough  and  painstaking  preparation  and  deliberation,  and 
the  more  so,  where  such  changes  are  radical  in  their  nature. 

J.  H.  Merriam. 

Proposed  City  Manager  Charter  Defective 

The  following  is  a  letter  from  a  city  manager.  If  Cadillac, 
Mich.,  wouldn't  like  the  proposed  amendment,  why  should  Pasa- 
dena like  it? 

"I  believe  that  it  would  be  a  great  mistake  for  the  amend- 
ment to  require  that  all  the  directors  be  elected  at  the  same  time 
for  two-year  terms.  This  undoubtedly  will  result  in  a  political 
turmoil  at  some  time  as  would  most  likely  have  been  the  case 
in  Cadillac  last  fall.  Owing  to  the  fact  that  three  of  the  five 
commissioners  were  not  removed  co-operation  is  perfect  and  con- 
ditions are  very  satisfactory. 

"The  limitation  as  to  the  amount  of  salary  to  be  paid  the  man- 
ager might  be  satisfactory  for  a  few  years,  but  if  Pasadena 
grows  in  population  and  favors  the  proposed  form  of  govern- 
ment to  the  fullest  extent  of  efficiency,  they  will  in  later  years 
want  to  be  in  a  position  to  meet  the  demands  for  efficiency  in 
being  able  to  hold  a  capable  manager  or  secure  one  at  the 
salaries  city  managers  are  undoubtedly  going  to  command  in 
other  large  cities.  When  that  time  comes  it  will  be  rather  diffi- 
cult to  get  an  amendment  passed  granting  the  directorate  power 
to  pay  higher  salaries." 

T.  V.  Stephens, 
General  Manager  City  of  Cadillac. 

Following  is  an  extract  from  a  letter  of  Charles  E.  Hewes, 
city  manager  of  the  city  of  Alhambra,  together  with  expressions 
of  opinion  from  several  citizens: 


OF  GOVERNMENT  225 

"The  following  provisions  in  the  amendment  I  do  not  believe 
to  be  wise: 

(i)  "  'AH  directors  are  elected  at  the  same  time  for  two-year 
terms.' 

"This  means  that  every  second  year  a  new  set  of  directors 
would  take  office.  They  would  be  unfamiliar  with  the  policies  of 
the  old  directorate,  the  work  it  had  accomplished  as  well  as  that 
which  it  had  planned.  Further,  they  would  not  be  conversant 
with  the  work  of  the  manager.  It  would  take  them  several 
months  to  'get  into  harness.'  I  believe  it  is  a  much  better  policy 
to  have  a  change  each  year,  without  distributing  the  majority  on 
the  board.  Under  our  charter  the  president  of  the  commission, 
who  is  elected  at  large  in  the  city,  holds  office  two  years.  The 
balance  of  the  commission  holds  office  four  years,  with  one 
commissioner  going  out  of  office  each  year. 

(2)  "The  idea  of  limiting  the  salary  of  the  city  manager  is 
not  a  good  one. 

"The  city  of  Pasadena  is  bound  to  grow,  and  $6,000  per  year 
may  not  be  sufficient,  in  a  few  j'ears,  to  induce  the  proper  man 
to  assume  the  duties  of  a  manager.  Of  course  the  charter  could 
be  amended,  but  to  my  mind,  the  more  rational  way  would  be  to 
name  a  minimum  salary,  leaving  the  maximum  to  the  directors. 

(3)  '"The  directors  can  name  only  the  aggregate  sum.  which 
may  be  spent  by  any  department,  leaving  the  expenditure  of  this 
amount  entirely  to  the  judgment  of  the  manager.' 

"I  do  not  particularl}^  like  this  section,  as  it  would  seem 
from  reading  the  same  that  after  the  directorate  had  fixed  a 
lump  sum  to  be  spent  by  any  department,  it  would  have  no 
further  interest  as  to  how  and  where  the  money  should  be  spent. 

"The  directorate  is  the  policy-forming  body  of  the  city,  and 
if  it  is  policy  to  set  aside  a  definite  sum  of  money  for  a  particu- 
lar improvement,  this  provision  would  seem  to  interfere.  The 
manager  is  not  greatly  interested  in  what  the  directorate  may 
wish  to  do.  He  may  advise,  it  is  true,  but  if  a  certain  piece  of 
work  is  decided  upon,  it  is  his  dutj''  to  see  that  the  work  is 
properly  done  and  that  the  city  gets  value  received  for  every 
dollar  spent,  accounting  to  the  people  for  the  same." 

City  Manager  Would  Possess  Unlimited  Powers 

The  commission  form  of  city  government,  as  it  now  exists, 
divides  the  responsibility  into  departments,  which  should  give  to 


226  CITY  MANAGER  PLAN 

the  city  the  very  best  results.  In  cities  operating  under  this  plan, 
where  capable  men  are  selected,  it  has  unquestionably  proved 
to  be  very  satisfactory. 

The  plan  proposed  by  amendment  of  the  city  charter  elim- 
inates all  departments  and  turns  over  the  entire  management  of 
all  the  affairs  of  the  city  to  one  person  called  a  city  manager. 
Under  the  amendment  proposed  it  gives  the  city  manager  ex- 
traordinary authority. 

He  is  charged  with  the  enforcement  of  all  the  laws.  He  is 
to  assume  the  entire  and  exclusive  control,  direction  and  super- 
vision of  all  the  departments  of  the  city.  He  is  to  issue  rules 
and  regulations  for  the  management  of  all  of  its  departments. 

He  is  given  power  to  appoint  or  remove  any  and  all  employes 
of  the  city,  except  the  auditor,  police  judge,  city  attorney  and  the 
city  treasurer.  He  is  to  have  power  to  fix  the  qualifications, 
powers  and  duties  of  all  employes  of  the  city  except  the  auditor, 
police  judge,  city  attorney  and  city  treasurer  aforesaid.  He  is  to 
make  monthly  reports  from  the  various  departments,  and  an 
itemized  estimate  of  all  financial  needs  of  the  various  depart- 
ments of  the  city. 

He  is  to  have  power  to  act  as  a  police  office  and  make  arrests 
and  suspend  licenses. 

In  a  word,  he  is  made  both  an  administrative  and  executive 
officer,  and  is  charged  with  extraordinary  responsibilities ; 
greater,  in  fact,  than  any  one  person  is  capable  of  performing. 

The  proposed  charter,  after  making  provision  for  all  of  the 
above  duties  to  be  performed  by  the  manager,  then  very  curiously 
provides  that  "the  city  manager  shall  designate  (appoint)  by  in- 
strument filed  with  the  city  clerk  some  properly  qualified  person 
to  perform  the  duties  of  his  ofilice  during  his  disability  or  absence 
from  the  city." 

It  seems  that  the  directors  propose  to  allow  him  extraordinary 
authority  to  make  appointment  filling  his  own  office  in  his  ab- 
sence. Why  not  reserve  this  power  in  case  of  his  absence  or 
disability? 

It  seems  to  me  that  the  proposed  charter  places  in  his  hands 
almost  unlimited  powers  and  authority  not   expedient  or  wise, 
nor  in  the  best  interests  of  a  great  city  the  size  and  importance 
.  of  our  city. 

H.  W.  Magee. 


OF  GOVERNMENT  227 


FIVE  REASONS  WHY  THE  CITIZENS  COMMIT- 
TEE OPPOSED  THE  ADOPTION   OF  THE 
CITY  MANAGER  PLAN  IN  PASADENA, 
CALIFORNIA' 

We  believe  it  is  to  the  best  interest  of  Pasadena  to  vote  "No" 
November  21st  on  the  proposed  change  in  our  form  of  municipal 
government  and  urge  our  fellow  citizens  so  to  vote  for  the  fol- 
lowing reasons : 

1.  The  proposed  "City  Manager  Plan"  has  been  tried  in  but 
a  comparatively  few  cities  and  there  is  no  certainty  at  this  time 
that  so  new  and  radical  a  change  would  better  the  government 
of  Pasadena. 

2.  If  we  grant  that  a  "City  Manager  Plan"  would  be  a 
beneficial  change,  yet  the  proposed  amendment  is  faulty  in  sev- 
eral important  respects,  as  pointed  out  by  city  managers  to  whom 
this  amendment  has  been  submitted,  to-wit : 

(a)  The  manager  is  limited  to  a  salary  of  $6,000  per  annum. 
This  should  be  left  to  the  municipal  directors  to  decide,  the  same 
as  the  directors  of  private  corporations  fix  a  manager's  salary. 

(b)  The  directors  are  to  be  selected  for  two  years;  hence 
every  two  years  there  would  be  a  complete  change  of  the  entire 
board.  We  believe  they  should  be  elected  for  four  years  with 
overlapping  periods,  so  that  a  majority  of  the  board  would  be 
hold-overs  and  familiar  with  the  city's  business. 

(c)  The  proposed  amendment  provides  that  the  directors 
shall  name  a  lump  sum  to  be  expended  in  each  department.  We 
believe  the  city  manager  should  formulate  both  the  annual  tax 
and  appropriation  budget,  public  hearings  on  same  should  be 
held,  and  a  budget  finally  determined  upon  so  that  expenditures 
will  be  offset  by  income. 

(d)  We  believe  the  directors  should  be  elected  at  large, 
and  should  not  represent  wards  or  districts,  that  we  should  be 
able  to  select  the  best  men,  irrespective  of  the  district  in  which 
they  reside.  Under  the  proposed  plan  too  great  an  incentive  is 
given  to  legislative  log  rolling.  If  this  city  is  to  be  governed 
by  a  directorate,  the  body  should  represent  the  city  as  a  whole. 

(e)  We  believe  the  amendment  should  read  "The  manager 

Reprinted  from  the  Pasadena  Star-News  of  November  18,  19 16. 


228  CITY  MANAGER  PLAN 

shall  attend"  and  not  "He  tnay  attend"  directors'  meetings,  and 
for  obvious  reasons. 

The  above,  (o),  (b),  (c),  (d)  and  (e),  are  five  defects  that 
seem  apparent  at  this  time.  All  of  them  have  been  called  to  our 
attention  by  the  city  managers  of  other  municipalities. 

3.  It  is  admitted  that  our  charter  could  be  revised  advan- 
tageously, but  we  do  not  believe  the  commission  form  of  govern- 
ment has  been  thoroughly  tested  here  nor  has  it  proven  inefficient 
or  uneconomical.  Quite  the  contrary.  Many  improvements 
have  been  effected,  the  tax  rate  reduced  and  the  public  service 
extended  without  the  voting  of  bonds.  Only  two  municipalities 
in  Los  Angeles  County  have  a  lower  tax  rate  than  Pasadena,  viz., 
Eagle  Rock  and  Arcadia. 

4.  The  present  movement  for  a  complete  change  in  our  form 
of  government  has  been  unfortunately  inaugurated.  We  do  not 
believe  it  is  fair  either  to  the  city  manager  plan  or  to  the  citizens 
generally  to  have  brought  so  important  a  movement  to  a  focus 
practically  at  the  close  of  a  national  political  campaign  and 
oblige  the  citizens  to  vote  at  a  special  election  scarce  two  weeks 
after  the  general  election  was  held  on  a  matter  they  do  not  thor- 
oughly understand.  This  subject  should  have  had  general  and 
extended  discussion  prior  to  any  election.  It  should  be  handled 
through  a  representative  citizens'  committee  or  a  regularly  elected 
board  of  freeholders  as  provided  in  our  state  constitution. 

5.  We  wish  for  Pasadena  the  best  form  of  government  pos- 
sible. We  pledge  ourselves  to  co-operate  with  our  fellow  citi- 
zens to  this  end.  But  we  are  unalterably  opposed  to  an  immediate 
and  radical  change  in  our  form  of  government,  without  a  prior 
investigation  and  extended  discussion  to  the  end  that  the  citizens 
generally  may  have  intelligent  and  definite  opinions  upon  the  sub- 
ject. With  Pasadena  today  one  of  the  best  improved,  best 
governed  and  most  prosperous  municipalities  in  the  state,  we 
urge  our  fellow  citizens  "to  make  haste  slowly." 

Citizens  Committee, 

Edward  F.  Parker,  Secretary. 


OF  GOVERNMENT  229 

ARGUMENT    AGAINST    THE    ADOPTION    OF 

THE  CITY  MANAGER  PLAN  IN  BERKELEY, 

CALIFORNIA' 

[The  city  council  of  Berkeley  submitted  to  the  voters  a  prop- 
osition to  incorporate  the  office  of  city  manager  into  the  city 
charter.  The  amendment  was  defeated  on  Nov.  7,  1916,  by  about 
six  hundred  votes.  Apparently  no  aggressive  campaign  was 
waged  for  the  adoption  of  the  amendment. — Ed.] 

No  adequate  reason  has  been  advanced  to  induce  Berkeley 
to  adopt  the  city  manager  plan.  We  are  told  in  general  terms  of 
the  wonderful  work  done  in  Dayton,  of  the  increase  in  efficiency 
under  a  manager,  of  the  financial  saving  to  be  effected,  but  an 
analysis  of  these  claims  does  not  show  they  are  justified  and  the 
people  of  Berkeley  should  take  care  they  are  not  deceived  as  they 
were  by  the  proponents  of  our  present  commission  government. 
It  is  fair  at  this  point  to  observe  that  the  deception  was  not 
intentional.  The  board  of  freeholders  that  drew  up  our  charter 
were  honest  in  the  belief  that  a  commission  constituted  the  best 
city  government.  We  were  told  it  would  be  more  economical  and 
more  responsible  than  the  old  council  plan.  In  fact  that  it  was 
the  last  word  in  municipal  government. 

It  did  not  take  long  for  the  freeholders  to  find  they  were 
mistaken,  so  they  reconvened  and  decided  our  city  should  be 
conducted  on  the  city  manager  plan.  We  must  now  bear  in  mind 
that  the  same  roseate  promises  which  induced  us  to  adopt  our 
present  form  of  government  are  being  used  in  favor  of  the  Day- 
ton plan. 

When  we  consider  conditions  in  Dayton  before  the  manager 
plan  was  adopted  it  is  easy  to  understand  why  a  change  was 
made.  As  a  matter  of  fact  any  change  was  a  change  for  the 
better. 

The  following  extract  from  Toulmin's  books,  "the  city  man- 
ager," gives  a  fair  idea  of  the  Ohio  city's  reason  for  trying  the 
experiment : 

"It  was  a  government  by  deficit,  a  government  with  no  check 
on  expenditure  by  any  department,  with  little  foretliought  in 
regard  to   that  embarrassing    future   question   as   to   where  the 

^  By  C.  C.  Emslie.  Reprinted  from  the  Berkeley  Daily  Gazette,  No- 
vember 3,  19 1 6. 


230  CITY  MANAGER  PLAN 

money  was  to  come  from.  In  six  years  the  total  deficit  amounted 
to  $360,000,  or  an  average  of  $60,000  a  year,  in  1912  alone  the 
council  made  the  barefaced  appropriation  of  $1,051,300  upon  an 
acknowledged  income  of  $943,000,  or  an  increase  over  income  of 
$108,300." 

In  view  of  the  above  it  is  not  to  be  wondered  at  that  Dayton 
was  ripe  for  a  change,  but  it  would  seem  that  what  the  citizens 
of  that  community  really  needed  was  not  a  manager  but  a  guar- 
dian. 

Surely  no  one  will  contend  that  this  city  is  in  such  desperate 
straits  as  was  Dayton.  It  is  admitted  that  our  form  of  govern- 
ment is  highly  unsatisfactory  but  the  writer  believes  the  reason 
is  that  the  governing  power  is  improperly  distributed;  is  not  in 
sufficiently  close  touch  with  the  voters  and  that  the  adoption  of 
the  manager  plan  would  increase  these  tendencies. 

As  for  the  increase  in  efficiency — is  it  not  possible  that  we  are 
making  a  fetish  of  the  term?  It  is  not  the  present  day  tendency 
of  our  city  governments  to  disregard  the  bounds  of  the  com- 
munity means  and  needs  in  the  insane  desire  to  emulate  larger 
and  wealthier  communuities  ?  Are  not  departments  builded  up 
out  of  all  proportion  to  necessities?  It  would  seem  so.  City 
Manager  Reed  of  San  Jose  in  the  course  of  an  address  on  his 
work,  recently  delivered  in  this  city,  claimed  he  had  increased 
his  efficiency  by  constituting  himself  the  city  complaint  depart- 
ment ;  that  all  sorts  of  people  telephone  to  him  at  all  sorts  of 
hours,  with  all  sorts  of  complaints.  Many  of  these  complaints, 
he  admitted,  were  frivolous  and  beyond  his  power  to  remedy. 
Now,  it  may  be  efficiency  for  Manager  Reed,  who  gets  $6,000  a 
year  to  do  work  which  could  as  well  be  attended  to  by  an 
ordinary  clerk,  but  the  writer  doubts  it. 

It  is  also  doubtful  if  the  new  plan  would  effect  any  saving  to 
the  taxpayers.  Manager  Reed,  in  the  address  above  referred  to, 
freely  admitted  that  the  only  saving  he  could  point  to  under  his 
administration,  was  the  elimination  of  the  office  o£  city  treasurer, 
whose  duties  are  now  conducted  by  a  bank  at  a  saving  to  the 
city  of  $5,000  a  year.  This  plan  is  not  new ;  it  is  in  use  in  var- 
ious eastern  cities  and  will  probably  be  adopted  in  Berkeley,  city 
manager  or  no  city  manager. 

What  Berkeley  needs  is  a  government  fairly  i;esponsive  to 
the  wishes  of  the  majority  of  the  citizens;  a  government  based 
on  the  needs  of  the  city,  not  on  the  needs  of  other  cities.     We 


OF  GOVERNMENT  231 

were  foolish  enough  to  adopt  the  commission  plan  as  a  result 
of  a  big  flood  in  Galveston;  let  us  not  repeat  the  folly  by  adopt- 
ing the  manager  plan  because  of  corruption  and  mismanagement 
m  Dayton. 


ARGUMENTS   AGAINST   THE   ADOPTION    OF 
THE  CITY  MANAGER  PLAN  IN  SPRING- 
FIELD, MASSACHUSETTS' 

[On  November  7,  1916  voters  of  Springfield  preferred  the 
Federal  plan  to  the  city  manager  plan,  on  December  5,  the  exist- 
ing plan  was  preferred  to  the  federal  plan. — Ed.] 

The  Union  opposes  the  adoption  of  the  proposed  new  charter 
Eor  Springfield  because  it  is  convinced  that  the  present  charter 
offers  a  much  wiser  and  safer  form  of  government.  The  Union 
does  not  believe  that  the  people  of  this  city  should  surrender 
the  participation  that  they  now  have  in  their  government  and 
vest  their  control  in  the  hands  of  a  mayor  who  would  have  it 
in  his  power  to  do  Springfield  irreparable  injury. 

It  is  not  an  improved  form  of  government  that  creates  an 
opportunity  for  the  mayor  to  build  up  a  political  machine  so 
powerful  as  to  make  its  overthrow  next  to  impossible. 

It  is  not  an  improvement  to  abolish  the  common  council  and 
substitute  ward  aldermen  for  aldermen  elected  at  large. 

It  is  not  an  improvement  to  throw  the  schools  into  politics 
by  making  members  of  the  school  board  mere  ward  committee- 
men. 

It  is  not  an  improvement  to  give  the  mayor  power  to  remove 
members  of  the  school  committee  at  his  pleasure.  Advocates  of 
the  proposed  charter  admit  that  this  is  a  mistake,  and  say  they 
did  not  intend  to  give  the  mayor  any  such  power,  but  the  fact 
remains  that  the  charter  does  give  it  to  him. 

It  is  not  an  improvement  to  take  the  water  department,  now 
handled  as  a  strictly  business  enterprise,  and  put  it  under  polit- 
ical control. 

It  is  not  an  improvement  to  substitute  for  the  present  checks 
and  balances  the  uncertain  devices  of  the  initiative,  the  referen- 
dum and  the  recall. 

1  Reprinted  from  The  Springfield  Union,  issues  of  December  3  and  6, 
1916. 


232  CITY  MANAGER  PLAN 

When  the  charter  of  Springfield  is  revised  the  revision  ought 
to  be  made  in  the  light  of  the  city's  actual  experience.  Nobody 
can  dispute  the  fact  that  whatever  may  be  the  theoretical  dis- 
advantages of  the  present  charter,  the  city  has  had  good  govern- 
ment under  it  continuously  for  sixty-four  years.  The  mere  fact 
that  Springfield  gets  the  highest  average  price  for  its  bonds  of 
any  city  in  the  United  States  of  itself  affords  convincing  evidence 
that  our  municipal  administration  has  been  and  still  excellent. 
The  last  sale  of  bonds  in  Dayton,  O.,  which  boasts  of  a  city 
manager  and  all  the  latest  wrinkles  in  government,  was  made 
on  a  basis  of  3.98.  The  last  sale  of  Springfield  bonds  was  made 
on  a  basis  of  3.48.  The  net  debt  of  this  city  is  less  than  3  per 
cent  of  the  valuation,  which  is  one  half  of  i  per  cent  under  that 
of  the  average  of  all  the  other  Massachusetts  cities.  Our  aver- 
age tax  rate  for  all  purposes  for  the  last  ten  years  has  been 
$16.14,  which  is  the  lowest  average  of  any  city  of  like  population 
in  the  country.  Here,  in  brief,  is  a  financial  record  that  affords 
convincing  evidence  that  Springfield  voters  should  leave  well 
enough  alone. 

Citizens  of  Springfield  who  have  taken  little  interest  in  the 
activities  of  those  responsible  for  all  the  municipal  charter  agita- 
tion are  opening  their  eyes  as  to  the  facts  regarding  the  agitators 
and  their  schemes. 

By  this  time  everybody  can  be  satisfied  as  to  the  motives  of 
the  federal  charter  leaders.  First  of  all,  it  is  a  Democratic  move 
to  obtain  control  of  the  city  by  setting  up  a  system  of  ward 
politics  from  which  even  the  school  board  would  not  be  immune. 
Representing,  as  it  does,  an  attempt  to  break  into  the  school  de- 
partment, the  proposed  charter  is  making  enemies  of  many  citi- 
zens who  otherwise  might  have  less  concern  in  the  proposition. 

Up  to  yesterday  there  seemed  to  obtain  so  much  public 
indifference  to  the  charter  question  that  the  federal  crowd  was 
all  confidence,  because  the  lack  of  interest  apparently  was  on 
the  other  side.  About  all  the  activity  in  this  campaign  has  been 
the  work  of  the  federalists.  Advantages  have  been  with  them 
from  the  time  when  their  charter  defeated  the  city  manager 
plan  by  a  close  vote  at  the  November  election. 

The  serious  situation  that  in  this  respect  confronts  Springfield 
today  can  be  summed  up  in  a  few  words.  It  is  a  plot  by  Demo- 
cratic politicians  to  get  a  hold  on  the  school  committee,  in  which 
purpose  they  are  aided  and  abetted  by  such  Republicans  as  cer- 
tain city  manager  schemers  have  been  able  to  mislead. 


OF  GOVERNMENT  233 

As  for  the  city  manager  schemers,  already  it  has  been  shown 
by  their  own  works  that,  having  lost  their  case,  they  stand  out 
in  the  destructive  light  of  being  ready  to  foist  a  cheap  charter 
upon  the  city,  with  consolation  for  them  in  the  reflection  that  it 
would  prove  to  be  so  rotten  they  could  before  very  long  come 
back  again  with  their  city  manager  project. 

In  the  referendum  at  the  state  election  the  federal  form  of 
charter  won  over  the  city  manager  form  by  a  majority  of  330. 
In  the  referendum  at  the  city  election  yesterday,  when  the  voters 
had  an  opportunity  to  say  whether  they  preferred  this  federal 
form  to  the  charter  now  serving  the  city,  a  majority  of  2,919  was 
rolled  up  for  the  present  charter.  This  should  end  for  a  long 
time  the  activities  of  those  who  are  laboring  under  the  delusion 
that  Springfield  is  in  need  of  an  entirely  new  instrument  of  gov- 
ernment. 

Whatever  may  be  the  defects  of  the  bicameral  system  as  it  is 
here  operated,  those  defects  are  not  of  a  character  so  serious 
as  to  convince  the  people  that  the  only  remedy  is  to  discard  the 
city's  experience  of  sixty-four  years  merely  because  some  other 
cities  are  experimenting  with  new-fangled  contraptions.  The 
charter  of  the  city  may  some  day  be  revised  in  the  light  of  the 
amendments  it  has  received,  and  such  further  amendments  as 
are  demed  advisable,  but  not  for  a  very  considerable  period  will 
anybody  or  any  interest  have  the  temerity  to  conduct  an  agitation 
for  a  radical  departure  in  our  governmental  methods. 

The  Union  is  very  glad  to  have  contributed  its  mite  toward 
the  preservation  of  the  honorable  charter  under  which  Spring- 
field has  made  such  substantial  progress,  and  under  which  it  has 
achieved  so  enviable  a  reputation  among  American  municipalities. 


KANSAS  CITY  DEFEATS  MANAGER  PLAN' 

Kansas  City,  Mo. — The  proposal  for  a  new  charter  for  Kansas 
City  was  voted  down  at  a  special  election  by  an  almost  even 
vote,  the  negative  vote  having  a  majority  of  about  50.  A  four- 
sevenths  majority  was  necessary  for  passage.  The  proposed 
charter  called  for  a  simplified  form  of  city  government  along  the 
lines  of  the  city-manager  plan.  Under  the  plan,  ward  lines  were 
to  be  abolished  and  city  government  directed  by  an  administra- 

*  Municipal  Journal,  p.  383.  March  15,  1917. 


234  CITY  MANAGER  PLAN 

tive  board  instead  of  the  city  council.  Approximately  32,000 
votes,  about  half  those  registered,  were  polled.  The  day  after  the 
election  mayor  George  H.  Edwards  announced  that  he  expected 
soon  to  name  a  board  of  freeholders  to  draft  a  new  city  charter 
to  be  submitted  to  the  voters  for  adoption  as  quickly  as  it  could 
be  prepared.  Mayor  Edwards  declared  he  would  recommend 
that  the  freeholders  "correct  the  many  errors  in  the  defeated 
charter,  embody  the  good  features  of  it  and  retain  the  provisions 
of  the  present  charter  that  years  of  experience  have  proved  to 
be  good,  providing  a  simple  but  safe  form  of  government."  The 
charter  was  opposed  by  mayor  Edwards  and  factions  of  both  the 
larger  parties. 


COMMISSION  FORM  LOSES' 

Iowa  City,  la. — By  a  vote  of  899  to  747  the  proposition  to 
substitute  the  commission-manager  plan  of  city  government  for 
the  council  and  mayor  system  in  Iowa  City  was  lost  at  a  special 
election.  The  vote  total,  1,646,  was  just  a  little  more  than  half 
of  the  complete  city  vote.  Two  wards  out  of  five  gave  a  major- 
ity in  favor  of  the  plan.  Four  years  ago  the  proposition  to  adopt 
the  commission  form  of  government  for  the  city  was  lost  by  a 
majority  of  195  against  the  proposal. 


CITY  MANAGER  PLAN  DEFEATED^' 

Arkansas  City,  Kan. — The  city  manager  plan  of  municipal 
government  was  defeated  here  by  a  majority  of  51  votes,  912 
ballots  being  cast  for  the  plan  and  963  against  it. 


COUNTY  MANAGER  CHARTER  DEFEATED" 

Napa,  Cal. — The  proposed  county  charter  was  defeated  by 
the  voters  of  Napa  County  by  a  three  to  one  vote.  The  pro- 
vision in  the  charter  for  a  business  manager  and  the  proposed 
increased  appointive  power  for  the  supervisors  are  declared  re- 

^  Municipal  Journal,  p.  383.  March  15,  1917. 
^Municipal   Journal,    p.    421.    March    22,    1917. 
^  Municipal    Journal,    p.    382.    March    15,    1917. 


OF  GOVERNMENT  23S 

sponsible  for  its  defeat,  although,  if  adopted,  the  constitution 
provides  that  it  may  be  amended  at  any  time  by  a  majority  vote 
or  it  may  even  be  surrendered  by  a  two-thirds  vote.  It  was 
estimated  that  $10,000  a  year  would  be  saved  in  salaries  under  the 
charter  plan  of  combining  a  number  of  offices.  Under  the  pro- 
posed charter,  five  supervisors  would  be  elected  at  large  and  would 
receive  a  salary  of  $50  a  month.  These  would  appoint  a  busi- 
ness manager  who  would  be  ex-officio  purchasing  agent  and  pub- 
lic administrator  and  receive  a  salary  of  $2.so  a  month.  The 
supervisors  would  have  power  to  name  the  road  engineer,  who 
has  direct  charge  of  all  construction  of  highways  and  bridges, 
and  of  the  business  manager,  who  would  have  general  super- 
vision of  all  county  offices.  Under  the  charter  the  office  of 
auditor  was  made  one  of  great  importance  and  an  elaborate 
budget  system  was  provided.  The  auditor  and  the  business  man- 
ager would  fix  the  budget  after  each  county  official  submitted  to 
them  the  amounts  necessary  to  run  their  several  offices  during  the 
year.  This  budget  would  be  submitted  to  the  supervisors,  who 
could  lower  it,  but  not  raise  any  of  the  estimates.  A  imiform 
system  of  bookkeeping  was  also  required  by  the  charter.  The 
purchase  of  all  county  supplies,  including  those  for  all  schools, 
would  have  been  in  the  hands  of  the  purchasing  agent.  That 
taxation  should  not  be  rapidly  increased  except  in  case  of  great 
public  danger  or  emergency  was  provided  in  the  charter.  In 
1918  the  supervisors  would  not  be  able  to  raise  more  than 
$260,000  by  taxation  and  in  each  succeeding  year  the  amount 
would  not  be  increased  above  the  amount  raised  during  the  pre- 
vious year  by  more  than  three  per  cent.  The  tenure  of  present 
county  officials  was  not  affected  by  the  charter,  and  the  provi- 
sions of  the  state  constitution  regarding  the  initiative,  referen- 
dum and  recall  were  made  a  part  of  it. 


ANOTHER  COUNTY  CHARTER  DEFEATED^ 

Lakeport,  Cal. — The  proposed  charter  for  Lake  County  was 
defeated  by  the  voters  by  a  large  majority,  almost  two  to  one. 
The  campaign  was  hard  fought.  The  defeated  charter  was 
similar  in  many  of  its  provisions  to  the  one  voted  down  in  Napa 
County,  described  last  week. 

^Municipal  Journal,  p.  421.  March  22,  1917. 


236  CITY  MANAGER  PLAN 

IOWA  CITY  MANAGERS  RESIGN^ 


Iowa  Falls,  la. — On  April  i,  E.  L.  Marriage,  who  has  been 
the  city  manager  here  for  the  last  three  years,  will  retire  from 
that  position  and  his  successor  will  be  chosen.  Mr.  Marriage  has 
tendered  his  resignation  with  a  view  to  accepting  "a  better  pay- 
ing position  and  one  that  is  not  dependent  upon  politics."  Dur- 
ing the  three  years  of  the  city  manager  plan  here,  according  to 
the  satisfaction  of  the  citizens,  Mr.  Marriage  has  demonstrated 
its  success  and  much  good  has  been  accomplished  through  his 
management,  backed  by  a  mayor  and  council  co-operating  in 
making  the  plan  operative  in  the  best  way.  Before  he  became 
city  manager  Mr.  Marriage  was  county  auditor. 

Webster  City,  la. — H.  G.  Vollmer,  who  has  held  the  position 
of  city  manager  here  for  a  year,  has  resigned,  and  plans  to  leave 
here  April  i.  Manager  Vollmer's  resignation  came  as  a  sur- 
prise to  the  members  of  the  council.  His  formal  resignation  cites 
no  reason  for  his  action.  It  is  understpod  here,  however,  that 
Mr.  Vollmer  has  had  several  offers  of  a  better  position  and  his 
friends  make  no  secret  of  the  fact  that  the  resignation  was 
largely  caused  by  the  insistence  of  the  council  in  curbing  the 
manager's  authority.  At  no  time  since  Mr.  Vollmer  came  here 
has  he  been  given  the  full  management  of  the  city's  affairs.  His 
friends  claim  he  has  been  so  hampered  as  to  interfere  seriously 
with  plans  he  has  had  in  mind,  and  that  his  resignation  is  the 
culmination  of  dissatisfaction  with  the  attitude  the  council  has 
assumed  toward  him. 

^Municipal  Journal,  p.  421.  March  22,  1917. 


OF  GOVERNMENT 


237 


APPENDIX 

MUNICIPALITIES  UNDER  THE  CITY  MANAGER 
PLAN,  MARCH  1,  1918' 


City  Population, 

1918 

Albuquerque,   N.  Mex.  14,000 

Altoona,    Pa 60,000 

Anoka,     Minn 2,000 

Auburn,    Me 17,000 

Ballinger,    Tex 

Bethlehem,    Pa 15,000 

Birmingham,    Mich....  6,000 

Boulder,    Colo 12,000 

Brigham    City,    Utah.  .  4,000 

Brownwood,     Tex 7,000 

Bryan,    Tex 7,000 

Carrington,    N.    D 

Durham,    N.    C 25,000 

Eaton    Rapids,    Mich. .  s,ooo 

Edgeville,     Pa 8,000 

El   Dorado,   Kans 5,000 

Farmville,    Va 5,000 

Gallipolis,    0 6,000 

Goldsboro,   N.   C 11,000 

Griffin,     Ga 8,000 

Grosse      Pte.      Shores, 

Mich 1,200 

Hanford,     Cal 

Kalamazoo,    Mich 60,000 

Kingsport,    Tenn 8,000 

Lubbock,    Tex 2,000 

Madill,    Okla 4,000 

Manchester,    Iowa....  3,300 

Mangum,     Okla 

Mt.    Pleasant,    Iowa..  4,200 

Muskegon  H'ts.,  Mich.  3,000 

New    Hampton,    Iowa.  2,Soo 

Norfolk,    Va 90,000 

Ocala,    Fla 6,000 

Petersburg,    Va 26,000 

Pipestone,    Minn 3,000 

Royal    Oak,     Mich....  .■j.oco 
Sault       Ste.       Marie, 

Mich 13,000 

So.   Charleston,    O....  1,200 

Three  Rivers,   Mich...  6,000 

Titusville,     Pa 12,000 

Waltham,    Mass 30,000 

Xenia,    0 9,000 


In  Effect 


Jan., 
Jan., 
Apr., 
Feb., 
Jan., 
Mar., 
Apr., 
Jan., 
Jan., 

Aug., 
May, 
May, 
Apr., 
Jan., 
July, 
Sept., 
Jan., 
July. 
Dec. 

June. 
Oct.. 
Apr., 
Mar., 


May, 
Nov., 
Apr., 
Jan., 

Sept., 
Feb., 
Sept., 
May, 
June. 

Dec, 
Jan.. 
Apr.. 
Dec, 
Mar., 
Jan., 


918 
918 
914 
918 
917 
918 
918 
918 
918 
917 
917 
917 
917 
913 
914 
917 
91S 
918 
917 
918 

916 
917 
918 
917 

917 
916 
914 
916 
917 
917 
918 
918 
920 
917 
918 

917 
918 
918 
913 
918 
918 


Manager  Salary 

P.    G.    Redington. .  .$4500 

H.  G.  Hinkle 8,000 

Henry  Lee 1200 

H.  G.  Otis 3600 


F.    O.  Heinrich ....   4,000 

C.    O.    Roskelley 

W.    E.    Dickerson 

J.  W.  Greer 2,400 

F.  J.  Beier 1,200 

W.  M.   Wilkes 3,600 

W.  M.   Cotton 2,400 

B.    C.    Wells 3,600 

Leslie    Fogus 1,200 

Edw.   E.   Myers....    1.500 

E.  A.  Beck 3.300 

G.  A.  Abbott 1.800 

Jay    Hinman 1.800 

W.  R.  Pouder 3,000 

H.    L.    McDuffie...  i.Soo 

Thomas    Wilson....  1,400 

W.  F.  Hearne 1,800 

T.    W.    McMillan..  1,530 

1,400 

J.    N.   Johnston 

F.  E.    Cogswell....    1.700 


J.    H.    Moore 3,600 

P.    H.   Cheney 1,400 

H.   A.  Holstein....  2,100 

C.   A.   Bingham....  5,000 

Kenyon    Riddle 3,000 


^A  supplement  to  the  lists  on  pp.   11  and   12  of  this  volume.     Figures 
are  taken  from  the  Municipal  Journal,  44:258-9.   March   30,    19 18. 


238  CITY  MANAGER  PLAN 

THE    PROPOSED    APPLICATION    OF    THE 
MANAGER   IDEA   TO   THE   GOVERN- 
MENT OF  CHICAGO' 

Will  Chicago  rise  to  her  great  opportunity  to  set  a  new 
pattern  for  the  efficient  and  democratic  government  of  all  our 
larger  cities?  If  she  does  so,  Chicago  will  again  justify  to  the 
world  and  to  history  her  splendid  motto  of  affirmation — "I 
Will." 

Such  an  opportunity  now  knocks  at  Chicago's  door  in  the 
form  of  a  detailed  and  carefully  drawn  bill,  subject  to  certain 
important  modifications,  for  the  legislature  to  enact,  reorganiz- 
ing that  city's  present  complex,  cumbersome  and  wasteful  scheme 
of  government  with  a  new  and  modified  application  of  the 
city-manager  plan.  Such  a  bill  has  been  drafted  by  the  Chicago 
Bureau  of  Public  Efficiency,  of  which  Harris  S.  Keeler  is  the 
director,  and  is  published  in  pamphlet  form  for  public  study 
and  consideration.  The  bureau  invites  suggestions  for  possible 
improvement  of  the  bill  before  the  legislature  meets.  It  is 
rather  expected  that  Governor  Lowden  will  call  an  extra  ses- 
sion of  the  legislature  and  in  that  case  he  may  conclude  this 
measure  in  his  call.  There  is  no  regular  session  in  1918  and 
the  present  Chicago  Mayor's  term  ends  in  April,  1919.  Hence 
the  importance  of  prompt  action. 

To  all  of  our  readers  who  are  following  the  series  of  articles 
dealing  with  the  existing  plans  of  government  in  the  larger 
cities  of  the  United  States  ("How  Our  Big  Cities  Do  Things," 
begun  in  October  Equity  with  the  study  of  New  York,  Phila- 
delphia and  Chicago  and  continued  in  this  issue  on  page  27)  the 
knowledge  that  a  great  drive  is  about  to  be  made  by  the  forces 
of  good  government  in  Chicago  for  a  modified  form  of  the 
city-manager  plan  will  be  intensely  interesting.  If  Chicago  can 
do  this  thing  and  make  it  work  out  advantageously  in  practice, 
then  other  large  cities  can  do  it.  The  effort  of  Chicago  will  be 
watched  by  all  students  of  municipal  government  with  genuine 
interest.  Hence  it  seems  worth  while  to  present  here  a  fairly 
comprehensive  summary  of  the  proposed  new  charter,  although 
the  main  features  of  the  plan  were  given  in  the  April  Equity 
(page  52,)  when  we  were  discussing  the  report  on  unification  of 

1  Equity.    20:11-16.    January,    1918. 


OF  GOVERNMENT  239 

Chicago's  local  governments  issued  by  the  same  bureau  which 
has  now  drawn  this  bill. 

The  Executive  in  the  New  Plan 

Although  the  proposed  bill  is  intended  to  give  Chicago  the 
essential  features  of  the  city-manager  plan,  the  term  "city- 
manager"  is  not  used  therein.  For  the  executive  head  the  title 
of  "Mayor"  is  retained.  But  instead  of  being  elected  by  the 
voters  of  the  city,  the  Mayor,  under  the  new  plan,  will  be 
chosen  by  the  reconstructed  City  Council  to  be  the  chief  execu- 
tive officer  of  the  city  and  may  be  "any  competent  person  who 
is  a  citizen  of  the  United  States." 

The  Mayor  will  "administer  the  executive  power  of  the  city" 
but  will  do  so  "under  the  direction  of  the  City  Council,  and 
will  hold  his  office  for  an  indefinite  period  at  the  pleasure  of  the 
Council."  The  Mayor  will  be  authorized  to  appoint  and  to  re- 
move at  will  (without  a  trial  or  statement  of  cause)  the  head 
of  every  principal  department,  except  the  City  Clerk  and  City 
Comptroller.  The  Mayor  would  have  to  give  notice  of  any  such 
appointment  or  removal  to  the  Council,  but  the  Council  would 
have  no  power  to  reinstate  an  officer  removed  by  the  Mayor 

Before  the  end  of  each  fiscal  year  the  Mayor  is  required  to 
submit  to  the  Council  an  itemized  budget  for  each  department 
with  comparisons  of  same  for  previous  year  and  estimated  rev- 
enues, obligations,  etc. 

Other  Officers  Under  the  New  Plan 

The  City  Comptroller  will  also  be  elected  by  the  Council 
and  hold  office  at  the  Council's  pleasure  as  the  chief  accounting 
and  auditing  officer.  But  aside  from  the  control  of  accounts 
and  audits,  the  Comptroller  is  to  have  no  supervision  of  officers. 

The  City  Clerk  is  to  be  chosen  by  the  Council  to  hold  office 
at  the  pleasure  of  the  Council. 

The  City  Treasurer  is  to  be  appointed  by  the  Mayor  and  hold 
office  at  the  Ma:yor's  pleasure.  He  is  to  be  the  head  of  the 
city's  finance  department. 

The  executive  departments  are  to  be  such  as  may  be  created 
and  defined  by  the  Council;  and  each  department  shall  include 
such  bureaus  and  divisions  as  may  be  determined  by  the  Coun- 
cil. No  officials  except  members  of  the  Council  are  to  be 
elected   by  popular   vote. 

16 


240  CITY  MANAGER  PLAN 

City  Council  Under  New  Plan 

The  City  Council  is  to  be  a  one-chambered  body  composed  of 
35  aldermen,  elected  by  popular  vote,  one  from  each  ward,  for  a 
term  of  four  years,  at  $4,000  salary.  The  Council  must  elect 
its  own  presiding  officer,  who  may  cast  one  vote  on  all  questions. 
The  choice  of  Mayor,  Comptroller  and  City  Clerk  must  be  by  a 
majority  vote  of  the  Council. 

The  Mayor  may  veto  ordinances  but  any  vetoed  ordinance 
may  be  repassed  by  only  as  many  votes  as  is  necessary  for  its 
first  passage. 

The  grant  of  a  street  franchise  may  be  made  by  a  majority 
vote  of  the  Council,  but  not  for  more  than  five  years,  (a)  unless 
passed  by  a  two-thirds  majority  and  a  declaration  that  it  shall 
not  be  subject  to  either  the  mandatory  or  optional  referendum, 
or  (b)  unless  the  proposed  ordinance  provides  for  its  being  sub- 
mitted to  the  voters,  or  (c)  it  provides  that  it  shall  not  go  into 
effect  for  60  days,  during  which  period  if  a  petition  signed  by 
5  per  cent,  of  the  voters  at  the  last  election  is  filed,  the  said 
ordinance  may  not  go  into  effect  unless  approved  by  a  majority 
of  the  voters  voting  thereon.  The  Council  is  authorized  to 
submit  any  such  ordinance  to  the  voters. 

N on-Partisan  Election  and  Recall 

The  provision  for  the  non-partisan  election  of  aldermen  is 
that  nominations  be  made  by  petition  only,  signed  by  not  less 
than  1%  of  the  voters  of  a  ward.  There  are  no  primary  elec- 
tions and  in  case  no  candidate  gets  a  majority  of  the  votes  at 
the  election,  provision  is  made  for  a  supplementary  election, 
three  weeks  after,  when  only  the  two  highest  candidates  at  the 
first  election  are  voted  for. 

Any  alderman  is  made  subject  to  recall  after  serving  one  year, 
the  recall  being  invoked  by  a  petition  signed  by  25  per  cent,  of 
the  voters  of  his  ward  who  voted  at  the  last  aldermanic  elec- 
tion. The  city-wide  Recall  will  not  exist  as,  under  this  bill,  alder- 
men elected  by  wards  will  be  the  only  officials  elected  by  pop- 
ular vote. 

The  Recall  petition  must  contain  a  general  statement  in  not 
more  than  200  words  of  the  ground  upon  which  the  removal  is 
sought.    The  procedure  prescribed  for  the  Recall  is  as  follows : 


OF  GOVERNMENT  241 

At  the  top  o£  the  ballot  is  placed  the  direct  question  in  the 
following  £orm: 


Shall   be 

removed  from  the  office  of  alderman  from 
the    Ward? 


Yes 


No 


Below  this  on  the  same  ballot  are  to  be  printed  the  names 
of  the  candidates  for  the  successor  to  said  alderman,  headed  by 
that  of  the  incumbent  alderman  whose  removal  is  sought.  But  in 
case  said  alderman  shall  have  resigned  within  five  days  after  the 
ordering  of  the  Recall  election,  then  neither  the  proposition  nor 
the  name  of  the  resigned  alderman  would  appear  on  the  ballots. 
Otherwise  the  votes  for  candidates  will  be  canvassed  only  in 
the  event  that  the  recall  proposition  obtains  a  majority  of  the 
votes  cast. 


Comment  and  Criticism 

Such  in  brief  outline  are  the  salient  features  of  the  modified 
city-manager  plan  proposed  for  Chicago.  In  respect  to  the 
administrative  side  of  Chicago's  government,  the  plan  is  a  vast 
improvement  over  the  existing  complexity,  divided  authority 
and  wasteful  methods.  It  is  undoubtedly  true  that  the  high  sal- 
aried mayor-manager,  responsible  only  to  a  small  one-chambered 
council,  and  with  full  power  to  co-ordinate  and  unify  the  various 
administrative  departments,  would  be  capable  of  accomplishing 
great  things  if  the  right  man  were  chosen. 

The  only  question  at  this  point  is :  what  assurance  have  the 
people  that  the  right  man  will  be  chosen?  It  is  altogether  com- 
mendable that  the  field  of  choice  for  this  highest  administrative 
office  is  not  limited  to  the  city  of  Chicago,  but  is  the  entire  citi- 
zenship of  the  United  States.  However,  it  might  be  asked  why 
the  field  of  choice  should  be  limited  to  this  nation.  If  a  person 
of  superior  attainments  or  abilities  could  be.  obtained  from  some 


242  CITY  MANAGER  PLAN 

other  part  of  the  world,  why  should  not  the  great  city  of  Chi- 
cago be  at  liberty  to  utilize  such  talent?  Not  infrequently  have 
large  private  corporations  in  this  country  drawn  their  executive 
managers  from  other  nations. 

As  to  the  legislative  side  of  this  proposed  plan  of  govern- 
ment, such  sweeping  approval  cannot  be  given.  It  may  be  quite 
reasonable  to  expect  that  the  smaller,  one-chambered  council, 
the  members  of  which  are  elected  for  four-year  terms  and  at 
substantial  salaries,  would  command  a  higher  grade  of  legisla- 
tors and  result  in  a  more  efficient  legislative  machinery.  The 
fact  that  the  Recall  is  made  applicable  to  members  of  the  coun- 
cil is  especially  appropriate  in  view  of  the  length  of  the  term, 
and  will  tend  to  guard  against  incompetent  or  corrupt  members 
of  the  council. 

So  far,  this  plan  means  a  decided  gain  for  the  people  of 
Chicago.  But  this  is  far  short  of  what  it  should  be  as  to  the 
legislative  or  policy-determining  body.  Why  does  the  proposed 
charter  omit  the  fundamental  provision  for  direct  control  of 
the  legislative  policy  by  the  voters  through  the  Initiative  and 
Referendum?  This  is  going  directly  in  the  face  of  the  recent 
trend  of  municipal  organization,  and  of  all  government  which 
presumes  to  stand  for  the  fundamental  principle  of  democracy. 
Is  it  not  strange  that  a  plan  of  government  to  be  offered  to  the 
people  of  Chicago,  at  a  time  when  the  whole  world  is  in  a 
great  struggle  to  maintain  democracy,  does  not  contain  the  recog- 
nized tools  of  democracy,  namely,  the  Initiative  and  Referen- 
dum, which  have  been  written  into  the  constitutions  or  statutes 
of  44  states  for  municipal  or  state- wide  use?  It  is  not  that  the 
people  of  that  city  would  expect  to  resort  to  these  instruments  of 
direct  control  frequently,  but  the  possibility  of  their  use  could  not 
fail  to  have  a  steadying  influence  over  any  body  of  legislators 
that  might  be  chosen  under  whatever  plan.  We  do  not  believe 
that  the  people  of  Chicago  will  stand  for  being  deprived  of  this 
power  to  control  their  own  affairs,  or  to  do  without  what  the 
President  of  the  United  States  has  so  aptly  termed  "the  gun 
behind  the  door." 

In  the  opinion  of  those  who  are  urging  this  city-manager 
plan  for  Chicago,  it  would  endanger  its  possible  enactment  by 
the  legislature  and  its  subsequent  adoption  by  the  voters  of  the 
city  to  include  provision  for  the  Initiative  and  Referendum.  We 
cannot,   at   our   distance   and   without    fuller   knowledge   of   the 


OF  GOVERNMENT  243 

present  political  situation  in  Chicago,  judge  as  to  this  question 
of  political  expediency.  Much  as  we  regard  the  importance  of 
the  Initiative  and  Referendum,  if  we  were  convinced  that  its  in- 
clusion in  this  bill  would  prevent  the  enactment  and  adoption 
of  the  proposed  plan,  we  would  distinctly  favor  obtaining  so 
much  of  improvement  and  trust  to  a  later  opportunity  to  bring 
the  Initiative  and  Referendum  feature  up  for  consideration  sep- 
arately and  on  its  own  intrinsic  merits. 

In  this  connection  we  are  reminded  of  the  experience  of  the 
city  of  Wilmington,  Del.,  several  years  ago,  when  the  voters 
rejected  an  otherwise  good  charter  because  the  legislature  had 
cut  out  of  it  the  provisions  for  the  Initiative  and  Referendum. 
Other  cities  have  had  a  similar  experience  and  many  observers 
believed  that  the  new  constitution  for  New  York  state  proposed 
in  1914  was  defeated  by  the  large  labor  vote  because  no  pro- 
vision was  made  for  popular  control  by  means  of  the  Initiative 
and  Referendum. 

Now,  under  the  pressure  of  a  war  for  world  democracy,  is 
it  not  likely  the  people  of  Chicago  may  be  getting  a  clearer  vision 
of  the  problem  of  popular  government  and  are  seeing  the  need 
of  the  "tools  of  democracy?"  If  so,  may  it  not  be  possible  that 
the  proponents  of  this  charter  are  deceived  and  that  the  omission 
of  the  Initiative  and  Referendum  may  be  the  very  thing  that 
will  cause  the  voters  to  reject  it? 

We  do  appreciate  the  delicacy  of  this  question  and  do  not 
doubt  the  good  intention  of  the  people  who  are  pushing  this 
new  and  vastly  improved  charter  for  Chicago.  In  view  of  the 
uncertainty  as  to  the  drift  of  the  public  opinion,  we  would  like 
to  suggest  to  all  friends  of  good  government  that  they  ask  the 
legislature  to  submit  to  the  voters  of  Chicago  a  proposition  for 
the  Initiative  and  Referendum  to  be  voted  on  separately  but  at 
the  same  time  that  the  proposed  charter  is  to  be  submitted. 
Thus  the  Initiative  and  Referendum  could  stand  or  fall  on  its 
own  merits  and  the  charter  would  not  be  endangered  by  being 
tied  up  with  the  instruments  of  direct  control. 

Thus  all  those  voters  who  believe  in  the  Initiative  and  Refer- 
endum for  the  sake  of  democracy  and  who  like  this  plan  of  city 
government  for  the  sake  of  efficiency  and  economy  of  administra- 
tion would  be  able  to  vote  in  the  affirmative.  At  the  same  time 
those  voters  who  like  the  new  plan  but  doubt  the  wisdom  of 
the  Initiative  and  Referendum  could  still  vote  for  the  plan.    In 


244  CITY  MANAGER  PLAN 

this  way  the  maximum  number  of  votes  for  the  new  charter 
would  be  obtained  and  both  questions  would  be  dealt  with 
fairly. 

This  separation  of  a  particular  question  from  a  proposed 
city  plan  has  often  been  done  and  is  perfectly  feasible.  We 
respectfully  suggest  this  plan  to  the  people  of  Chicago. 

The  same  reasons  of  political  expediency  which  have  moved 
the  sponsors  of  the  proposed  charter  to  omit  the  Initiative  and 
Referendum  have  doubtless  favored  the  retention  of  the  exist- 
ing system  of  majority  representation  through  one  councilman 
elected  from  each  ward.  They  must  know  that  some  applica- 
tion of  the  proportional  representation  principle  is  now  gener- 
ally recognized  by  our  foremost  thinkers  and  statesmen  to  be 
more  truly  representative  and  more  democratic.  To  this  end 
we  would  suggest  that  the  proposed  council  composed  of  35 
aldermen  be  elected  in  three  groups,  each  from  a  geographical 
division,  and  that  the  city  be  divided  into  three  districts  for  this 
purpose.  These  three  districts  need  not  be  exactly  equal  in 
population  or  as  to  the  number  of  representatives.  Undoubtedly 
the  best  method  of  proportional  representation  is  what  is  known 
as  the  Hare  system,  now  in  use  in  many  parts  of  the  world 
and  in  at  least  two  cities  of  this  country.* 

It  is  undoubtedly  true  that  if  the  proportional  plan  were  in- 
corporated in  the  proposed  Chicago  charter  the  absence  of  the 
Initiative  and  Referendum  would  not  be  nearly  so  serious,  al- 
though it  would  be  the  part  of  wisdom  to  have  that  means  of 
direct  control  still  in  the  hands  of  the  voters.  Also  the  recall 
of  the  aldermen  would  have  to  be  applied  on  a  far  different 
plan,  if  indeed  it  were  necessary  at  all.  The  proportional  plan 
also  might  be  submitted  to  the  voters  separately  and  thus 
further  increase  the  support  for  the  proposed  charter. 

In  regard  to  the  Recall  there  is  one  point  which  is  open  to 
criticism.  That  is,  the  provision  giving  the  aldermen  one  year's 
immunity  from  the  operation  of  the  Recall.  The  precedents 
are  very  largely  in  favor  of  a  shorter  period  of  immunity — 
six  months  being  the  present  standard.    In  a  few  cases  the  one 

^Note:  Anyone  wishing  to  know  more  about  the  world-wide  move- 
ment for  proportional  representation  or  who  would  like  to  obtain  expert 
advice  as  to  its  application  to  anv  municipality  should  consult  Mr.  C.  _G. 
Hoag,  the  general  secretary  of  the  National  Proportional  'Representation 
League,  whose  headqyarterg  are  in  the  Franklin  National  Bank  Building, 
Philadelphia,    Pa. 


OF  GOVERNMENT  245 

year  period  has  been  adopted,  but  we  think  that  is  an  unneces- 
sarily wide  latitude  for  a  municipal  officer  to  have  before  being 
subject  to  popular  rebuke. 

In  the  proposed  charter  the  handling  of  the  question  of 
public  franchises  is  also  open  to  serious  criticism.  In  our  judg- 
ment it  is  highly  improper  that  the  council  should  have  the 
power,  even  by  a  two-thirds  majority,  to  dispose  of  such  im- 
portant public  interests  in  such  a  way  as  to  leave  no  oppor- 
tunity for  the  direct  action  of  the  voters  through  the  Referen- 
dum. The  section  dealing  with  this  subject  does,  it  is  true, 
provide  for  a  5%  Referendum  as  to  franchise  grants  which  may 
be  passed  by  only  a  majority  vote  and  for  a  longer  period  than 
five  years,  but  of  what  value  is  this  limited  use  of  the  Referen- 
dum in  case  some  powerful  corporation  is  able  to  elect  or  con- 
trol 24  members  of  the  proposed  council? 

With  the  important  modifications  above  suggested,  this  plan 
of  organization  would  enable  Chicago  to  rise  in  her  majesty 
and  take  the  lead  in  the  nation-wide  movement  for  both  effici- 
ency and  democracy  in  municipal  government. 


UBR^B^f^^^-^!-- 


-fiiiiii,.... 

336  8A6 


^^     00^ 


